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sponsible for  its  return  to  the  library  from 
which  it  was  withdrawn  on  or  before  the 
Latest  Date  stamped  below. 

Theft,  mutilation,  and  underlining  of  books 
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/ 


REGULATED  PUBLIC  UTILITY  SERVICE 


BY 


JOHN  HOWARD  MATHEWS 

B.  S.  University  of  Illinois,  1913 
M.  S.  University  of  Illinois,  1914 


THESIS 


Submitted  in  Partial  Fulfillment  of  the  Requirements  for  the 


Degree  of 


ELECTRICAL  ENGINEER 


IN 

THE  GRADUATE  SCHOOL 
OF  THE 

UNIVERSITY  OF  ILLINOIS 


1921 


Digitized  by  the  Internet  Archive 
in  2016 


https://archive.org/details/regulatedpublicuOOmath 


TABLE  OF  CONTENTS 


CHAPTER  I. 

Page 

GENERAL  1 

Definition  of  Service  2 

Maximum  Service  for  Unit  of  Cost  3 

CHAPTER  II. 

FACTORS  ENTERING  INTO  SERVICE  OF  PUBLIC 
UTILITIES 5 

Electric  Utilities  6 

Gas  Utilities  6 

Water  Utilities  . ...» 6 

Railroads  7 

Telephone  Utilities  7 

Heating  Utilities  7 

CHAPTER  III. 

NECESSITY  FOR  ATTENTION  TO  SERVICE  9 

Continuity  of  Service  9 

Voltage  Regulation  10 

Frequency  Regulation  11 

Construction  and  Maintenance  12 

Quality  of  Gas  13 

Service  of  Water,  Telephone,  Heating  and 

Railway  Utilities  17 

Handling  Complaints  18 

Accuracy  in  Billing,  etc 21 

Accuracy  of  Registration 21 

Records,  Tests,  Surveys,  etc*  * 24 

CHAPTER  IV. 

REGULATION  OF  PUBLIC  UTILITY  SERVICE  27 

Development  of  the  Public  Utility  27 

Need  for  Regulation  27 

Regulation  vs.  Competition 29 

Source  of  Regulatory  Power  31 

State  vs.  Local  Regulation 31 

Home  Rule  34 

Invalidity  of  Ordinance  Contracts  36 


- 2 - 

Page 

State  Regulation  38 

Purpose  of  Regulation 38 

Establishment  of  Service  Standards  39 

Inspections  and  Investigations  40 

Results  not  Methods  to  be  Prescribed  41 

CHAPTER  V. 

DETERMINATION  OF  COMPARATIVE  VALUES  OF  SERVICE.  43 

Need  for  Service  Ratting  43 

Grading  of  Service  44 

Merits  of  Grading  System  55 

Influence  of  Local  Management  on  Service  .*57 

APPENDIX  59 


-*  y 


y y 


REGULATED  PUBLIC  UTILITY  SERVICE 


I. 

GENERAL 

"By  their  fruits  shall  ye  know  them."  This  passage 
of  scripture  written  centuries  ago-  generations  before  the 
public  utility  business  was  developed-  is  just  as  applicable 
in  our  age  to  any  sort  of  activity  or  industry  as  in  that 
age.  The  figure  of  speech  was  at  the  time  applied  to  the 
fruit  tree.  We  judge  the  fruit  tree  by  what  it  produces 
and  we  judge  a business  by  what  it  brings  forth  and  not  by 
the  manner  in  which  production  is  accomplished.  We  may  know 
nothing  about  the  chemical  compositions  of  the  sap;  we  may 
know  nothing  about  the  composition  of  the  wood;  nothing 
about  the  great  creative  principle  that  builds  the  blossoms 
or  moulds  the  fruit;  but  when  the  fruit  is  finally  develop- 
ed there  is  not  one  of  us  so  poorly  informed  that  we  cannot 
judge  the  fruit.  And  so  we  judge  the  tree. 

The  best  informed  consumer  of  a utility* s commodity 
may  know  nothing  about  the  utility’s  organization,  nothing 
about  the  financial  condition,  or  about  the  utility’s  prob- 
lems in  disposing  of  its  securities;  he  may  know  nothing 
about  lines  of  authority  in  the  organization,  nothing  about 


■ 

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• 

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* 

• 

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the  functions  of  the  departments  or  duties  of  the  employes.  To 
him  "sinking  fund"  or  "straight  line  depreciation"  may  mean 


2. 


nothing  if  not  a disease  or  new  kind  of  soap.  He  may  know  no 
more  about  the  details  of  the  company’s  business  than  one  of 
us  knows  about  the  principles  of  the  growth  of  the  fruit  tree; 
yet  the  most  ignorant  consumer  will  quickly  know  if  a utility 
furnishes  water  not  potable,  gas  that  will  not  cook  meals,  or 
electricity  that  will  not  illuminate  his  living  room  or  turn 
his  motor.  The  famous  passage  might  be  modernized  so  as  to 
be  applicable  to  public  utilities  and  stated:  "By  their  serv- 
ice shall  ye  know  them." 

Definition  of  Service 

Service  is  defined  in  the  New  Standard  dictionary  as 
"any  work  done  for  the  benefit  of  another."  Warren  G.  Harding, 
in  his  recent  inaugural  speech,  made  this  contribution  to  the 
subject  of  service:  "Service  is  the  supreme  commitment  of 

life.  I would  rejoice  to  acclaim  the  era  of  golden  rule  and 
crown  it  with  the  autocracy  of  service."  The  Public  Utili- 
ties Commission  Law  of  the  State  of  Illinois  contains  the  fol- 
lowing: 

"The  term  ’service*,  when  used  in  this  Act, 
is  used  in  its  broadest  and  most  inclusive  sense, 
and  includes  not  only  the  use  or  accommodation 
afforded  consumers  or  patrons,  but  also  any  pro- 
duct or  commodity  furnished  by  any  public  util- 
ity and  the  plant,  equipment,  apparatus,  appli- 
ances, property  and  facilities  employed  by,  or 
in  connection  with,  any  public  utility  in  perform- 
ing any  service  or  in  furnishing  any  product  or 
commodity  and  devoted  to  the  purposes  in  which 
such  public  utility  is  engaged  and  to  the  use  and 
accommodation  of  the  public." 


* 


• 

, 


• 

. 

. 

. 

« 

' 

. 

. 


3 


Maximum  Service  for  Unit  of  Cost 

In  a practical  sense,  however,  the  character  of  service 
furnished  must  necessarily  depend  on  the  cost  of  furnishing  it* 

In  very  small  communities  where  electric  energy  is  furnished  from 
a local  plant  and  where  no  energy  is  necessary  for  power  purposes 
the  furnishing  of  twenty  four  hour  service  would  manifestly  call 
for  an  expenditure  that  the  consumers  could  ill-afford  to  sup- 
port* Compliance  under  certain  conditions  with  standard  re- 
quirements of  voltage  regulation  might  require  an  investment 
out  of  proportion  to  the  benefit  received  in  way  of  the  improve- 
ment in  service.  The  distribution  of  locally  manufactured  gas 
in  small  towns,  while  entirely  possible,  is  impractical  for  the 
reason  that  the  consumers  could  not  afford  to  bear  the  cost  of 
furnishing  gas  at  a profit.  Individual  line  telephone  service 
will  not  justify  the  cost  of  furnishing  it  in  rural  communities. 
Innumerable  examples  might  be  cited  to  show  that  the  cost  of 
furnishing  a standard  grade  of  service  under  certain  conditions 
would  call  for  a rate  for  the  commodity  which  the  business 
could  not  bear. 

The  term  " service”  then,  in  its  most  practical  and 
economic  sense,  means  the  greatest  amount  of  service  for  unit 
of  cost  to  the  consumer  and  the  standard  by  which  it  is  judged 
should  be  determined  by  the  manner  in  which  the  public  will  be 
best  served.  In  considering  the  quantity  of  service  that  can 
reasonably  be  furnished  to  the  consumer  per  unit  of  cost  all 
the  important  factors  that  have  a bearing  on  the  business  must 
be  given  consideration.  The  character  of  fuels  available,  the 


. ■ 

, 

— » 


. 


•• 

. 

. 


4. 


type  and  condition  of  plant  and  machinery  in  use,  the  size  and 
character  and  location  of  community  served,  condition  of  the 
byproducts  market,  cost  of  labor  and  material,  and  the  losses 
attendant  upon  distribution  are  factors  vitally  affecting  the 
grade  of  service  that  the  utility  can  afford  to  furnish  and 
that  the  consumers  can  afford  to  purchase.  Duplicate  trans- 
mission lines,  emergency  units  and  standby  plants  may  all  add 
to  the  service  but  tend  to  make  the  cost  of  it  prohibitive. 


. 


. , I 

♦ 

- 


5 


II. 

FACTORS  ENTERING  INTO  SERVICE 
OF  PUBLIC  UTILITIES 

In  thinking  of  service  of  public  utilities  we  are 
likely  to  have  in  mind  only  a few  of  the  most  important  factors. 
When  the  average  user  of  electric  service  says  service  is  poor 
he  usually  means  it  is  subject  to  frequent  interruptions  or 
possibly  the  voltage  is  low.  The  gas  consumer  makes  complaint 
if  he  has  difficulty  in  cooking  and  may  say  service  is  satis- 
factory if  he  has  no  particular  trouble  in  this  respect.  The 
telephone  subscriber  says  service  is  "rotten"  if  he  has  to 
wait  too  long  for  the  operator  to  answer  his  signal.  These  are 
no  doubt  some  of  the  most  important  matters  to  be  considered 
in  classifying  service  but  an  analysis  of  the  records  of  any 
utility  or  of  any  regulatory  body  will  show  almost  every  con- 
ceivable objection  to  the  service.  Criticisms  are  made  of  the 
equipment,  methods  of  operation,  kind  of  treatment  accorded 
consumers,  extension  policies,  accuracy  of  meters,  and  many 
other  features.  In  fact,  the  broad  definition  from  the  Public 
Utilities  Commission  Law  quoted  above  has  been  found  none  too 
broad  to  cover  the  large  range  of  subjects  to  which  attention 
must  be  directed  if  patrons  of  the  public  utilities  are  to  be 
satisfied.  In  this  broad  sense  we  are  really  considering 
the  treatment  accorded  the  consumers  and  every  factor  that  en- 
ters into  such  treatment  may  properly  be  termed  a factor  of 
the  service. 


. 


, 

, 

- 

, 


. 

. 

. 


. 

. 


> 

, 


6 


More  specifically,  the  most  important  factors  that  en- 
ter into  the  furnishing  of  service  by  public  utilities,  which 
are  described  in  detail  in  Section  III,  are  listed  in  the  follow- 
ing paragraphs: 

a.  Electric  Utilities 

1-  Continuity  of  service. 

2-  Voltage  and  frequency  regulation. 

3-  Accuracy  of  meter  registration. 

4-  Construction  and  maintenance. 

5-  Adequacy  of  capacity. 

6-  Provisions  for  emergency. 

7-  Adjustment  of  bills . 

8-  Billing. 

9-  Extension  policy. 

10-  Promptness  in  furnishing  new  service 

11-  Handling  of  complaints 

12-  Regularity  and  accuracy  of  meter  readings 

13-  Courtesy  of  utility  representatives 

14-  Testing  of  service  and  keeping  of  records. 


b*  Gas  Utilities 


1- 

2- 

3- 

4- 

5- 

6- 

7- 

8- 
9- 

10- 

11- 

12- 

13- 

14- 

15- 

16- 
17- 


Continuity  of  service. 

Pressure 
Heating  value 
Purity 

Adjustment  of  appliances 
Accuracy  of  meter  registration 
Construction  and  maintenance 
Adequacy  of  capacity. 

Provisions  for  emergency 
Adjustment  of  bills 
Billing 

Extension  policy 

Promptness  in  furnishing  new  service 
Handling  of  complaints 

Regularity  and  accuracy  of  meter  readings 
Courtesy  of  utility  representatives 
Testing  of  service  and  keeping  of  records 


c.  Water  Utilities 


1-  Continuity  of  service 

2-  Quality  of  water 

3-  Pressure 

4-  Accuracy  of  meter  registration 

5-  Construction  and  maintenance 

6-  Adequacy  of  capacity 


7 


7-  Provisions  for  emergency 

8-  Adjustment  of  "bills 

9-  Billing 

10-  Extension  policy 

11-  Promptness  in  furnishing  new  service 

12-  Handling  of  complaints 

13-  Regularity  and  accuracy  of  meter  readings 

14-  Courtesy  of  utility  representatives 

15-  Testing  of  service  and  keeping  of  records 


d.  Railroads 


1-  Reliability  of  service 

2-  Adequacy  of  service 

3-  Safety  to  public 

4-  Construction  and  maintenance 

5-  Adequacy  of  capacity 

6-  Provisions  for  emergency 

7-  Extension  policy 

8-  Handling  of  complaints 

9-  Courtesy  of  employes 

10-  Sanitation  of  equipment  and  stations 


e.  Telephone  Utilities 

1-  Continuity  of  service 

2-  Intelligibility  of  transmission 

3-  Promptness  of  operators 

4-  Accuracy  of  connection 

5-  Accuracy  of  charges 

6-  Phraseology  and  courtesy  of  operators 

7-  Adequacy  of  capacity 

8-  Provisions  for  emergency 

9-  Adjustment  of  bills 

10-  Billing 

11-  Extension  policy 

12-  Promptness  in  furnishing  new  service 

13-  Handling  of  complaints 

14-  Testing  of  service  and  keeping  of  records 


f .  Heating  Utilities 

1-  Continuity  of  service 

2-  Adequacy  of  service 

3-  Pressure  (steam  heating) 

4-  Temperature  of  circulating  water 

5-  Accuracy  of  meter  registration 

6-  Construction  and  maintenance 

7-  Adequacy  of  capacity 

8-  Provisions  for  emergency 

9-  Adjustment  of  bills 


8 


10-  Billing 

11-  Extension  policy 

12-  Promptness  in  furnishing  new  service 

13-  Handling  of  complaints 

14-  Regularity  and  accuracy  of  meter  readings 

15-  Courtesy  of  utility  representatives 

16-  Testing  of  service  and  keeping  of  records 


- 
- 

- 

- 

' 7 

~ - 


9 


III. 

NECESSITY  FOR  ATTENTION  TO  SERVICE 
Continuity  of  Service 

The  factor  entering  into  service  by  public  utilities, 
which  in  most  cases  is  the  first  essential  to  good  service,  is 
continuity*  A few  short  interruptions  at  a time  when  they 
least  affect  the  consumer  need  not  be  considered  serious,  but 
if  many  long  interruptions  occur  at  times  when  interruptions 
are  most  serious,  they  are  provoking  to  the  public,  extremely 
annoying  and  may  occasion  considerable  financial  loss.  Where 
interruptions  are  contemplated  for  the  purpose  of  working  on 
a system,  some  inconvenience  can  be  spared  the  public  if  pro- 
per notice  of  such  contemplated  interruptions  is  given* 

In  normal  periods  interruptions  of  gas  or  water  serv- 
ice to  an  entire  community  are  much  rarer  than  interruptions 
to  electric  service*  Plant  trouble,  inability  to  secure  coal, 
or  failure  of  the  company* s gas  holder  or  distribution  system 
may  cause  a total  Interruption.  The  service  may  be  interrupted 
locally  by  restrictions  in  the  mains  or  in  the  service  pipes, 
and  in  such  cases  the  interruptions  are  closely  allied  with, 
and  hard  to  differentiate  from,  low  or  poor  pressure  conditions. 

Consumers  can  get  along  without  meter  tests,  can  put 
up  with  low  voltage,  or  may  tolerate  low  pressure  of  gas  or 
water  supply  without  complaint,  but  when  the  service  is  entire- 
ly interrupted  every  one  knows  it.  Manufacturing  may  cease, 
business  is  at  a standstill,  and,  if  carried  to  the  extent  of 
affecting  transportation,  all  industries  may  suffer  and  a 


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national  crisis  follow,  so  entirely  dependent  are  we  nowadays 
upon  public  utilities  for  our  subsistence.  This  is  true  of 
service  furnished  by  electric,  gas,  water,  telephone  utilities 
and  railroads.  These  utilities  are  no  longer  luxuries. 

Voltage  Regulation 

Next  to  continuity  voltage  regulation  is  probably  the 
most  important  factor  in  electric  utility  service.  The  voltage 
regulation  on  some  systems  is  so  universally  satisfactory  that 
it  does  not  occur  to  the  consumers  that  poor  regulation  is  of 
material  consequence.  In  some  communities,  however,  regulation 
has  been  found  so  poor  as  to  make  both  lighting  and  power 
service  unsatisfactory,  and  indeed  become  so  serious  at  times 
as  practically  to  constitute  an  interruption.  Variation  of 
voltage  has  a very  important  effect  on  both  power  and  lighting 
service.  Induction  motor  torque  is  proportional  to  the  second 
power  of  the  voltage.  A reduction  of  ten  per  cent  in  voltage 
reduces  the  torque  approximately  twenty  per  cent.  Excessive 
voltage  causes  heating  of  motors  and  an  abnormal  exciting  cur- 
rent in  many  types  of  equipment.  A difference  of  voltage  on 
phases  of  polyphase  machinery  seriously  reduces  the  efficiency 
and  capacity  of  motors  and  may  cause  failure  of  the  equipment. 
Excessive  voltage  impressed  upon  transformers  frequently  intro- 
duces harmonics  into  the  electric  lines,  which  cause  very  dis- 
turbing influences  upon  paralleling  telephone  lines.  Tests 
as  a result  of  complaints  of  low  voltage  show  that  heating  ap- 
pliances often  become  practically  worthless  to  the  housekeeper 
unless  the  voltage  is  high  enough  to  properly  operate  them. 


. 


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Voltage  affects  the  life,  candle  power  and  efficiency 
of  lighting  equipment#  Plate  I in  the  Appendix  shov/s  the  ef- 
fect of  voltage  variation  on  these  various  characteristics  of 
the  mazda  lamp#  Carbon  lamps  are  even  more  sensitive  to  var- 
iation in  voltage#  These  characteristics  change  somewhat  with 
the  development  in  the  art  of  lamp  manufacturing  but  the  curves 
are  typical  of  the  various  characteristics# 

Closely  allied  to  the  effect  of  voltage  variation  on 
multiple  lamps  is  the  change  in  candle  power  of  series  lamps 
brought  about  by  changes  in  the  current#  Plate  II  sho?/s  the 
changes  in  the  mean  horizontal  candle  power  of  a 5 .5  ampere 
series  mazda  street  lamp  with  variation  in  current#  The  curve 
shows  also  the  variation  in  terminal  voltage  and  demonstrates 
conclusively  the  importance  of  operating  series  lamps  at  the 
correct  rated  current#  A reduction  of  five  per  cent  in  the 
current  causes  a reduction  of  approximately  fifty  per  cent  in 
candle  power,  whereas  practically  no  candle  power  is  developed 
if  the  current  is  less  than  fifty  per  cent  of  the  normal.  Ef- 
ficiency expressed  in  candle  power  per  ampere  increases  very 
rapidly  near  the  normal  current  value,  but  the  life  curve  of 
mazda  lamps  shows  a steep  decline  near  the  point  of  normal  cur- 
rent so  that  if  excessive  current  is  used  increased  efficiency 
is  offset  by  cost  of  replacement# 

Frequency  Regulation 

The  variation  in  frequency  of  alternations  is  a phase 
of  electric  service  which  may  very  seriously  affect  the  power 
user,  although  he  may  be  ignorant  of  the  cause  of  his  trouble. 


, 


12 


The  speed  of  synchronous  motors  is,  of  course,  directly  pro- 
portional to  the  frequency  of  the  impressed  voltage*  The  speed 
of  induction  motors  is  directly  affected  by  the  frequency  of  the 
impelling  energy  and  in  wide  variations  of  frequency  the  func- 
tioning of  various  types  of  equipment  is  seriously  interfered 
with.  While  variation  in  frequency  is  not  nearly  so  common  as 
fluctuations  in  voltage,  a number  of  cases  have  been  found  where 
the  correct  operation  of  equipment  has  been  affected  by  abnormal 
frequencies.  The  accuracy  of  watt  hour  meters  is  not  seriously 
affected  so  long  as  the  frequency  remains  within  commercial 
limits  but  tests  show  that  it  is  appreciably  affected  when  the 
variation  is  excessive. 

Construction  and  Maintenance 

In  the  broad  sense,  as  defined  above,  service  may  be 
considered  to  include  the  construction  and  maintenance  of  lines 
and  equipment.  Hazard  to  life  and  property  follow  from  equip- 
ment that  is  poorly  designed,  constructed  or  maintained,  and 
lack  of  attention  to  the  proper  care  of  lines,  apparatus  or 
equipment  or  other  facilities  will  sooner  or  later  be  reflected 
in  the  quality  of  service.  Poorly  constructed  or  maintained 
electric  lines  are  certain  to  cause  interruptions  or  unsatis- 
factory voltage  regulation.  Poor  telephone  lines  seriously  im- 
pair telephonic  transmission  or  prevent  it  entirely.  Lack  of 
proper  maintenance  of  gas  distribution  systems  causes 
stoppages  and  failure  to  give  close  attention  to  repairs  on 
railway  equipment  is  certain  to  affect  the  reliability  of  serv- 


ice 


:> 


* 


13 


There  is  a direct  and  positive  relation  between  con- 
struction and  service*  Systems  constructed  in  order  to  decrease 
investment  at  the  expense  of  stability  may  give  reasonably 
good  service  for  a time  or  while  favorable  conditions  of  weather 
prevail.  As  the  load  increases  and  the  equipment  becomes  in- 
adequate for  the  demand,  service  is  impaired.  During  sleet  or 
wind  storms,  and  especially  during  electrical  storms,  service 
is  very  likely  to  be  interrupted  unless  proper  provisions  have 
been  made  at  the  time  of  original  construction.  Precaution 
against  hazard  to  the  public  is  an  obligation  each  electric 
utility  owes  to  its  community.  Danger  from  broken  poles  or 
wires,  low  voltage  circuits  crossed  with  circuits  of  higher 
voltage,  or  defective  equipment  which  may  impose  high  voltages 
on  secondary  circuits,  are  all  too  common.  Poorly  constructed 
systems  require  excessive  maintenance,  and  a saving  in  original 
investment  which  results  in  excessively  high  maintenance  cer- 
tainly is  not  good  judgment. 

The  importance  of  proper  construction  and  careful  at- 
tention to  maintenance  are  of  primary  importance  in  every 
branch  of  the  public  utility  industry. 

Quality  of  Gas 

Four  factors  vitally  related  to  gas  service,  and  very 
largely  affecting  the  safety,  efficiency,  cleanliness  and  con- 
venience of  the  use  of  gas  are  (1)  heating  value,  (2)  pressure, 
(3)  amount  of  air  required  for  efficiency  combustion,  and  (4) 
sulphur  content. 


It  is  not  only  important  that  the  heating  value  of 


- 


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, 


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14 


gas  be  of  such  value  as  to  provide  the  required  heat  units  per 
cubic  foot,  but  it  is  also  essential  that  the  quality  be  uniform. 
Wide  fluctuations  in  heating  value  are  perhaps  more  annoying  than 
low  heating  value  of  a uniform  quality.  Tests  of  the  heating 
value  should  be  made  at  points  which  will  insure  results  repre- 
sentative of  the  quality  of  gas  actually  delivered  to  the  users. 
Tests  made  at  the  manufacturing  works  are  of  great  value  from 
an  operating  point  of  view,  but  they  do  not  serve  to  detect  de- 
ficiency in  quality  which  result  in  loss  of  heat  content  during 
transmission.  Incorrect  heats  and  improper  operation  during 
condensation  may  result  in  the  production  of  a gas  which  loses 
heat  giving  constituents  rapidly.  In  view  of  the  varying  con- 
ditions attendant  upon  the  manufacturing  and  distribution  of  gas, 
together  with  the  different  degrees  of  condensation  and  loss 
in  heating  value  that  appear  to  prevail,  the  consumer  is  fully 
protected  only  if  the  tests  are  made  at  some  point  at  a suffi- 
cient distance  from  the  plant  so  that  the  results  indicate  a 
representative  condition  of  the  gas  delivered  to  the  ultimate 
consumer.  Even  if  gas  were  uniformly  manufactured  at  all 
times  and  in  all  communities  the  data  available  to  show  the 
probable  loss  in  heating  value  due  to  transmission  is  yet  too 
meager,  I believe,  to  permit  a definite  determination  of  the 
heating  value  required  at  the  manufacturing  point  in  order  to 
insure  good  service  to  the  consumer.  If  tests  at  the  works  are 
to  be  used  as  a possible  basis  of  control  of  operation  it  is 
desirable  that  they  should  be  supplemented  by  tests  made  at  some 
distance  from  the  works  from  time  to  time  in  order  to  determine 
that  the  quality  of  the  gas  does  not  deteriorate  unduly  enroute 


15 


to  the  user. 

Many  years  ago  the  candle  power  standard  practically 
determined  the  quality  of  gas  to  be  furnished.  This  followed 
from  the  fact  that  it  was  used  primarily  for  open  flame  lamps, 
and  until  a few  years  ago  the  candle  power  standard  of  gas  was 
considered  very  important.  There  has  recently  come  into  use 
the  British  thermal  unit  standard  and  it  is  practically  univer- 
sally accepted  as  the  correct  criterion  of  the  value  of  gas  to 
the  consumer  for  both  lighting  and  heating  purposes,  as  the  use 
of  gas  in  open  flat  flame  burners  has  largely  fallen  into  dis- 
use. There  is  a surprising  uniformity  of  mantle  candle  power 
per  heat  unit  supplied  per  hour.  Tests  have  been  made  which 
show  a variation  of  less  than  three  per  cent  from  this  rela- 
tion of  candle  power  to  heating  value  of  the  gas  supplied  per 
hour,  over  the  interval  540  to  640  B,t.u.  per  cubic  foot*  It 
is  important  also  to  bear  in  mind  the  advantage  to  the  gas 
maker  of  the  heating  standard  over  the  candle  power  standard 
on  account  of  the  greater  ease  of  operation  to  meet  a heating 
unit  standard  as  well  as  the  smaller  percentage  loss  in  heat- 
ing value  during  pumping  or  distribution  of  the  gas.  In  one 
series  of  tests  reported  to  the  Bureau  of  Standards  it  was 
found  that  pumping  by-products  gas,  which  had  been  "benzolized" 
to  give  about  16  candle  power  units  in  the  open  flame  and  600 
B.t.u.  total  heating  value,  produced  losses  of  about  40  per 
cent  in  candle  power  and  less  than  7 per  cent  in  heating  value, 
due  to  compression  and  transmission  at  30  pounds  pressure  for 
nine  miles  with  the  ground  temperature  less  than  50  degrees 
Fahrenheit,  On  other  gases  mixed  with  carburetted  water  gas 


* 


16. 


with  candle  power  value  up  to  22  and  heating  value  up  to  620 
B.t.u.  the  candle  power  lost  varied  from  15  to  35  per  cent, 
whereas  the  loss  in  heating  value  was  not  over  5 per  cent  and 
in  some  cases  less  than  2 per  cent* 

In  Circular  No.  110  on  the  Influence  of  Quality  of 
Gas  and  Other  Factors  on  the  Efficiency  of  Gas-Mantle  Lamps, 
the  Bureau  of  Standards  concludes  as  follows: 

"With  uniform  gas  quality  and  with  good  con- 
ditions of  service  in  other  particulars  the  useful- 
ness for  mantle  lighting  of  lean  water  gas  of  the 
qualities  studied  compared  with  rich  water  gas  is 
slightly  higher,  for  some  types  of  lamps,  than  in 
proportion  to  the  total  heating  values.  Comparing 
lean  coal  gas  and  lean  water  gas  of  the  qualities 
tested,  the  coal  gas  is  slightly  less  useful,  and 
this  difference  is  about  the  same  as  the  differ- 
ence between  the  two  qualities  of  water  gas. 

Hence,  it  may  be  concluded  that  the  usefulness  of 
a uniform  quality  of  coal  gas  of  550  to  575  B.t.u. 
per  cubic  foot  as  compared  with  a uniform  supply 
of  richer  water  gas  (e.g.,  one  meeting  a 22  candle- 
power  requirement)  is  substantially  in  proportion 
to  the  heating  values  of  the  two  gases.  However, 
greater  fluctuations  in  B.t.u.  per  cubic  foot, 
slightly  greater  diff iculities  in  adjustment,  and 
the  other  factors  met  in  commercial  use  of  lamps 
make  the  higher  quality  gas  somewhat  less  desir- 
able per  heat  unit  for  general  use  than  either  of 
the  two  kinds  of  lean  gas." 

The  usual  complaint  of  "poor  gas"  is  ordinarily  con- 
fused with  poor  pressure  or  improper  regulation  of  appliances. 
Good  pressure  is  perhaps  even  more  essential  than  high  heating 
value  or  uniform  quality.  Pressure  conditions  are  easily  de- 
termined by  the  use  of  a "U"  tube  or  pressure  gauge,  and  we 
have  noticed  that  the  utility  which  gives  careful  study  to  the 
kind  of  pressure  prevailing  throughout  its  system  has  less  com- 
plaint of  unsatisfactory  service  than  the  utility  maintaining 
a better  heating  standard.  Each  utility  should  make  pressure 
surveys  at  such  intervals  and  of  such  comprehensiveness  as  may 


o 


' ■ 


- 


/ 


' I 


17 


be  necessary  to  keep  itself  fully  informed  regarding  the  char- 
acter of  the  service  being  furnished  from  its  system* 

Variations  in  constituency  of  gas  call  for  varying 
quantities  of  air  to  complete  combustion*  Obviously  it  is  very 
important  that  gas  using  appliances  give  satisfactory  operation 
at  all  times  with  no  great  amount  of  attention  on  the  part  of 
the  consumer  since  the  majority  of  consumers  cannot  be  expected 
to  adjust  their  appliances  to  meet  any  new  condition  of  gas  mix- 
ture, specific  gravity  of  the  gas,  or  others  variable  over  which 
the  consumer  has  no  control*  To  a greater  or  less  extent  the 
users  of  gas  on  an  industrial  scale  can  and  will  make  such  ad- 
justments but  the  efficient  utilization  of  gas  for  domestic 
purposes  is  ordinarily  dependent  upon  such  uniformity  of  supply 
as  will  permit  satisfactory  operation  with  a fixed  adjustment 
of  the  appliances  or  fixtures* 

No  objectionable  feature  of  gas  service  is  so  quickly 
noticeable  as  the  distribution  of  incompletely  purged  gas*  Not 
only  are  foul  gas  fumes  extremely  obnoxious  but  they  are  des- 
tructive to  animal  and  plant  tissue*  Tests  for  presence  of 
hydrogen  sulphide  are  very  easily  made  but  determinations  of 
total  sulphur  content  are  not  so  simple*  During  the  last  year 
or  two  when  the  coal  situation  presented  difficult  operating 
problems,  it  was  extremely  difficult  to  purify  the  gas  properly 
at  all  times  • Proper  size  and  rotation  of  purifying  boxes  and 
effective  tests  to  determine  when  the  oxide  is  spent,  tend  to 
reduce  possibilities  of  sulphur  trouble* 

Service  of  Water,  Telephone,  Heating  and  Railway  Utilities 

A large  number  of  the  factors  which  go  to  constitute 


■ 

•-  - • - : 

. 

‘ 


. 


« 


*:  *: 


• ■ • 


' ■ ‘ 


. 

, 

, 

' ::  i 

. a 

, 

• . 

, 


. 


. 


18. 


good  service  in  electric  or  gas  utilities  are  also  common  to 
water  service.  Such  matters  as  continuity,  pressure,  con- 
struction and  maintenance,  meter  accuracy,  etc.,  apply  to  water 
service  as  well  as  to  gas  service  or  electric  service.  The 
quality  of  water,  however,  is  even  more  important  than  quality 
of  gas,  although  pressure  is  probably  of  less  importance  than 
gas  pressure.  Adequacy  of  fire  service  is  a factor  which  is 
peculiar  to  water  service.  With  telephone  utilities  the  in- 
telligibility of  transmission  is  of  first  importance,  while 
the  promptness  of  operators  on  first  answer  and  on  recall, 
their  phraseology  and  courtesy,  and  accuracy  of  connection  are 
phases  of  service  depending  primarily  upon  the  personnel  of  the 
operators.  Other  phases  of  telephone  service  are  dependent 
upon,  and  largely  affected  by,  switchboard  and  station  equip- 
ment and  the  construction  and  maintenance  of  lines.  Utilities 
furnishing  hot  water  service  must  pay  special  attention  to  the 
temperature  and  pressure  of  circulating  water  at  all  periods 
of  day  and  night,  and  must  be  careful  to  furnish  proper  pres- 
sure throughout  the  system  where  steam  heating  service  is  fur- 
nished. In  connection  with  service  from  steam  and  electric 
railroads  and  street  railways,  the  reliability  of  service, 
adequacy  of  the  equipment,  safety  to  the  public,  sanitation 
of  equipment  and  stations,  and  the  furnishing  of  proper  facili- 
ties and  extensions  are  all  factors  which  go  to  make  the  serv- 
ice. 

Handling  Complaints 

It  has  been  our  experience  that  the  method  of  handling 


19# 


complaints  has  been  one  of  the  most  important,  if  not  the  most 
important,  factor  in  molding  the  public  opinion  of  public  util- 
ities, The  relations  between  the  utility  and  the  public  are 
amicable  or  inimical,  depending  to  a large  extent  on  the  util- 
ity’s success  in  satisfactorily  handling  complaints  and  the  con- 
troversies arising  through  complaints*  More  than  one  municipal 
plant  can  be  traced  directly  to  the  former  utility’s  failure  to 
properly  cope  with  some  situations  usually  originating  in  some 
complaint  against  the  service#  Through  the  handling  of  com- 
plaints most  utilities  find  their  only  opportunity  of  meeting 
their  consumers.  The  utility  gains  its  impression  of  its  con- 
sumers through  these  complaints,  which  are  often  presented  at 
a time  when  the  consumer  is  indignant,  and,  on  the  other  hand, 
the  consumer  gains  his  impression  of  the  utility  through  the 
methods  by  which  the  complaint  is  handled#  This  is  unfortunate, 
but  it  is  a condition  of  fact  which  must  be  met  and  emphasizes 
the  importance  to  a public  utility  of  meeting  the  situation  in 
a commendable  manner# 

A consumer  may  have  but  one  occasion  in  his  experience 
to  register  a complaint  against  a public  utility.  His  opinion 
of  the  utility  - and  certain  of  his  associates  will  be  influenced 
by  his  opinion  - will  be  based  on  the  treatment  accorded  him  in 
that  experience  and  the  amount  of  individuality  the  utility’s 
representative  injects  into  his  case#  To  the  complainant’s  mind 
his  case  stands  out  as  a particular  case  meriting  individual 
attention#  To  the  utility’s  complaint  man  it  is  only  one  of 
dozens  he  has  encountered,  perhaps  on  the  same  day,  and  unless 
he  is  particularly  adapted  to  the  work  and  continuously  on  his 


I 


20 


guard  he  may  treat  the  complainant  indifferently,  perhaps  dis- 
courteously, and  will  dispose  of  the  complaint  in  a routine 
manner  very  much  as  a local  resident  might  answer  inquiries  of 
tourist  visitors  who  are  ever  harassing  him  for  information* 

To  the  complaint  man  it  lacks  individuality*  To  the  complain- 
ant it  is  a real  grievance  and  he  will  be  permanently  impressed 
by  the  manner  in  which  it  is  handled*  If  the  utility  is  will- 
ing to  give  each  complaint  a just  investigation  and  impress  the 
consumer  with  its  sincerity  of  purpose  the  complainant  is  well 
satisfied,  feels  an  appreciation  of  the  utility* s willingness 
to  properly  serve,  and  to  him  the  organization  assumes  human 
characteristics*  He  no  longer  thinks  of  it  as  a bloodless  cor- 
poration. A satisfied  consumer  is  a good  advertiser. 

A dissatisfied  consumer  may  cause  a utility  more 
trouble  and  grief  than  a whole  community  of  indifferent  custom- 
ers* If  his  grievance  is  not  adjusted  to  his  satisfaction,  he 
is  a cumulative  liability.  If  his  complaint,  on  the  other  hand, 
is  handled  to  his  satisfaction,  he  becomes  a traveling  asset 
and  develops  into  a more  effective  booster  for  the  company  than 
if  he  had  never  had  occasion  to  complain.  We  have  seen  munici- 
pal plants  vigorously  agitated  in  communities  where  the  service 
is  reasonably  good,  simply  because  the  management,  or  some 
representative,  with  whom  the  consumer  has  had  occasion  to  deal, 
has  not  shown  the  proper  disposition  to  render  the  complainant 
the  relief  he  desired.  We  can  all  recall  individuals  within 
our  acquaintance  who  even  in  granting  favors,  make  enemies* 

We  also  know  of  men  who  can  refuse  a favor  and  do  it  in  such  a 
manner  as  to  make  a warm  friend  of  the  man  whose  request  was 


21 


denied.  A complaint  man  with  the  right  qualifications  can  make 
most  of  the  dissatisfied  consumers  feel  they  have  been  given 
every  courtesy  and  consideration  or  can  cause  them  to  see  the  un- 
fairness of  their  point  of  view,  at  the  same  time  putting  them 
in  such  a frame  of  mind  that  they  will  be  satisfied  with  the 
treatment  accorded  them. 

Accuracy  in  Billing,  etc. 

Utilities  which  are  rendering  service  far  above  the 
average  grade  often  bring  upon  themselves  no  end  of  trouble, 
the  good  will  of  the  public  leaves  them  and  their  ship  of  state 
is  steered  surely  toward  the  rocks,  by  inaccuracies  in  billing 
resulting  possibly  from  inaccuracies  and  irregularities  in 
meter  reading  and  errors  in  bookkeeping.  An  error  leaves  an 
impression  that  is  a long  time  in  correction.  The  public  ex- 
pects the  utility  to  be  accurate  in  its  work,  probably  expects 
the  super-human  of  the  utility  representatives,  and  if  an  error 
is  made  unfavorable  to  the  consumer,  it  is  difficult  to  con- 
vince him  that  it  was  not  an  intentional  move  on  the  part  of  the 
utility  to  "gouge"  him  of  his  hard-earned  money. 

Accuracy  of  Registration 

Electric  energy  and  gas  distributed  by  public  utili- 
ties is  in  this  age  practically  universally  metered.  Water 
service  is  furnished  on  both  flat  and  metered  bases.  Accuracy 
of  registration  of  electric, gas  and  water  meters  is  necessarily 
extremely  important  since  it  is  upon  these  devices  that  the 
company* s return  depends  and  by  them  is  determined  the  amount 
the  consumer  is  to  pay.  Of  these  meters  the  electric  meter  is 


» 


« 

. 


. 


. 

, 

- 

- 


. 


- 





22 


most  complex.  Its  accuracy  is  affected  by  voltage,  frequency, 
amount  of  load  and  the  power  factor  of  the  energy  in  the  cir- 
cuit. The  accuracy  is  affected  by  abnormal  conditions,  such  as 
short  circuits,  lightning  disturbances,  vibration  and  rough 
handling.  Gas  and  water  meters  are  more  rugged  and  their  accu- 
racy not  so  likely  to  be  affected,  and  yet  the  accuracy  of  a gas 
meter,  for  instance,  is  very  appreciably  affected  by  temperature 
conditions  while  impurities  in  water  ultimately  affect  the  accu- 
racy of  water  meters.  Notwithstanding  all  this,  the  accuracy 
of  these  instruments  is  exceptional  and  the  more  experienced  an 
individual  becomes  with  a meter,  the  more  dependence  he  seems 
willing  to  place  in  it.  The  general  tendency  of  all  meters 
that  have  been  in  service  some  time  is  to  run  slow,  although 
occasional  instances  can  always  be  found  where  meters  over- 
register, sometimes  excessively. 

The  best  studies  of  tests  of  electric,  gas  and  water 
meters  indicates  that  periodic  tests  should  be  made  on  electric 
meters  at  intervals  ranging  possibly  from  two  and  one-half  to 
four  years,  at  intervals  of  five  to  seven  years  for  gas  meters, 
and  at  intervals  up  to  ten  years  for  water  meters.  The  fre- 
quency of  all  tests  on  all  kinds  of  meters  should  depend  some- 
what upon  the  amount  of  revenue  derived  from  the  particular  in- 
stallation which  is  in  general  more  or  less  governed  by  the 
size  of  the  meter.  The  Public  Utilities  Commission  of  Illinois 
has  seen  fit  during  the  last  year  to  extend  from  two  and  one- 
half  to  four  years  the  intervals  of  tests  on  all  small  alter- 
nating current  meters  which  meet  the  requirements  of  the 
National  Electric  Light  Code.  The  results  of  thousands  of 


* 


. 

. ' " 

. 


. 


. 


. 

- 

- 

, 

• ‘ 

, 


23 


tests  on  gas  meters  made  by  one  large  gas  utility  in  the  country 
during  the  past  few  years  appears  to  indicate  that  the  accuracy 
of  gas  meters  is  retained  very  well  until  the  meter  has  been  in 
service  between  seven  and  eight  years,  after  which  time  the 
tendency  to  under-register  becomes  marked*  The  Public  Utili- 
ties Commission  of  Illinois  has  extended  the  interval  on  gas 
meters  from  five  to  seven  years. 

The  question  is  often  raised  whether  meters  register 
accurately  on  varying  voltage  or  whether  an  electric  light  will 
consume  more  electricity  if  turned  off  and  on  repeatedly  In- 
stead of  burning  steadily,  A large  number  of  electric  con- 
sumers have  been  found  under  the  impression  that  meters  show 
no  decrease  In  registration  when  voltage  is  low.  With  a view 
of  determining  accuracy  of  watthour  meters  at  different  voltages, 
we  have  carefully  conducted  a test,  results  of  which  are 
plotted  on  Plate  III,  from  which  it  appears  that  watthour  meters 
register  slightly  in  error  when  voltages  above  or  below  normal 
are  impressed.  The  curve  referred  to  shows  results  of  tests 
made  on  a Sangamo  type  WH"  meter.  Within  commercial  ranges  of 
voltage  (10  per  cent  above  or  below  normal)  the  error  has  been 
found  to  be  less  than  one-half  per  cent.  It  is  interesting 
also  to  note  that  the  meter  over-registers  slightly  where  the 
voltage  is  below  normal  and  under-registers  where  the  voltage 
is  above  normal,  a condition  probably  contrary  to  what  would 
occur  to  us  on  first  thought  as  being  logical.  The  character- 
istic curves  of  the  Sangamo  watthour  meter  as  shown  on  Plate  IV 
show  that  except  for  very  light  loads  (below  8 per  cent  of 
normal)  the  meters  are  slightly  fast  for  voltages  below  normal 


. 


' 


* 

, 

. 

" 

- 

- 

i 


24. 


and  slow  for  voltages  above  normal,  the  amount  of  error  depend- 
ing on  the  load.  This  must  not  be  taken  to  mean  that  meters  reg- 
ister more  energy  when  the  voltage  is  low.  The  reverse  is  true. 
Registration  is  practically  proportional  to  voltage,  for  con- 
stant current,  but  if  the  voltage  is  90  per  cent  of  normal  the 
registration  will  be  about  90.3  per  cent  of  normal;  that  is, 
the  meter  will  register  about  0.3  per  cent  more  energy  than  is 
actually  consumed. 

To  determine  the  effect  of  varying  voltages  on  watt- 
hour  meters  we  recently  conducted  a test  where  the  accuracy  of 
three  meters  of  entirely  different  type  and  construction  were 
compared.  The  voltage  was  suddenly  changed  from  0 to  normal 
many  times  during  the  test.  The  results  appear  to  show  that  the 
effect  was  to  introduce  no  error  greater  than  about  1 per  cent. 
This  is  of  course  a very  extreme  condition  and  conclusively 
shows  that  variations  of  voltage  within  commercial  ranges  have 
no  appreciable  effect  on  electric  meter  accuracy.  Other  tests 
show  that  no  appreciable  error  was  introduced  when  the  current 
was  varied  continuously  from  0 to  normal. 

Records,  Tests,  Surveys,  etc. 

There  are  a large  number  of  matters  not  directly  af- 
fecting the  consumer  which  are  of  vital  importance  in  our  opin- 
ion in  the  proper  conduct  of  a public  utility  business.  Rec- 
ords, tests,  surveys,  etc.,  upon  which  establishment  of  ade- 
quate service  is  based,  are  matters  which  the  utility  cannot  af- 
ford to  neglect.  It  has  been  our  experience  that  in  numerous 
cases  public  utility  representatives  have  stated,  and  honestly,. 


. 

, 

. ' 

, 


. 


, 


, 


, 


, 

, 

, 

, 

25 


believe  - that  they  have  had  no  interruptions  to  service.  It  may 
even  be  that  their  representative  consumers,  provided  the  public 
attitude  is  favorable,  may  not  recollect  discontinuity.  A re- 
view of  records  conscientiously  and  accurately  kept  will  reveal 
the  fact,  however,  that  interruptions  have  occurred.  The  advan- 
tage of  a record  in  such  a case  is  obvious.  A short  outage  now 
and  then,  especially  at  a time  when  it  least  inconveniences  the 
consumer,  is  likely  to  be  forgotten  readily.  Several  such  in- 
terruptions, however,  if  recorded  and  made  proper  use  of,  will 
impress  the  management  with  the  necessity  of  giving  attention  to 
these  matters  of  service. 

Voltage  or  pressure  surveys  invariably  reveal  condi- 
tions more  or  less  serious,  the  existence  of  which  was  perhaps 
not  even  suspected.  Or  it  may  be  that  the  subordinate  repre- 
sentatives of  the  utility  may  not  pay  proper  attention  to  the  eli- 
mination of  unfavorable  service  conditions,  which  if  brought  to 
the  attention  of  the  general  manager  or  other  official  through  a 
study  of  records  will  be  given  immediate  and  serious  considera- 
tion. 

The  question  of  testing  all  kinds  of  meters  has  been 
given  more  or  less  consideration  and  efforts  have  been  made  dur- 
ing past  years  to  demonstrate  the  financial  importance  of  giving 
attention  to  the  accurate  registration  of  the  meters.  Such 
tests,  however,  are  only  partially  effective  if  records,  includ- 
ing monthly  or  annual  summaries,  are  not  kept.  A tabulation 
which  will  show  the  general  tendency  of  all  of  a utility* s meters 
to  under-register  will  be  given  the  consideration  it  deserves  by 
a well  managed  organization.  The  tester  himself,  or  perhaps  his 


26 


immediate  superior,  will  not  be  impressed  with  the  importance  of 
establishing  the  accuracy  of  meters  in  the  aggregate;  his  time 
is  too  much  taken  up  with  the  routine  of  his  work. 

It  may  be  true  that  some  old  over-organized  public 
utilities  where  some  representatives  have  a hobby  of  developing 
forms  and  creating,  rather  than  eliminating,  office  routine, 
will  be  burdening  the  utility  with  many  excess,  and  perhaps 
duplicate,  records.  The  reverse,  however,  is  generally  true, 
and  it  is  safe  to  say  that  by  far  the  larger  proportion  of 
public  utilities  suffer  from  lack  of  records  rather  than  from 
a superfluity. 

In  the  Appendix  are  shown  samples  of  suggested  forms  to 
be  used  in  keeping  records  of  interruptions,  meters,  meter  tests, 
station  operation,  etc. 


5. 


* 


t 


27 


IV. 

REGULATION  OF  PUBLIC  UTILITY  SERVICE 

Development  of  the  Public  Utility 

Certainly  one  of  the  outstanding  features  of  the  economic 
development  of  the  world  has  been  the  amazing  widening  of  the 
public  utility  industry.  The  water  utility  supplies  the  greatest 
human  necessity  and  has  solved  the  problem  of  private  and  public 
sanitation.  The  street  railway  by  facilitating  travel  has  made 
possible  the  present  large  American  city  without  the  congested 
slums  adjacent  to  factory  districts.  Gas  and  electric  utilities 
have  brought  heat,  light  and  power  in  every  conceivable  form  to 
supply  individual  comfort  and  needs.  Telephone  and  telegraphic 
systems  have  annihilated  space,  promoted  the  community  welfare, 
and  furnished  the  facilities  whereby  all  parts  of  the  civilized 
world  are  brought  in  almost  immediate  contact  with  each  other. 
Inventive  genius  developed  these  ideas,  courageous  individuals 
promoted  them  and  the  public  soon  learned  to  give  them  its  sup- 
port. 

Need  for  Regulation 

Contemporaneous  with  this  movement  have  naturally  develop- 
ed, as  in  any  other  enterprise,  some  of  the  abuses  which  have 
laid  the  industry  open  to  criticism.  Some  of  the  utilities  were 
formulated  and  exploited  for  speculative  and  unusual  profit. 

This  led  to  distrust.  There  was  developed  then,  more  or  less  by 
necessity,  some  sort  of  regulation  to  protect  the  public  against 
abuses  and  exploitation.  The  carrying  out  of  the  obligations  of 
the  public  service  corporations  created  a necessity  for  a wiser 


, 

. 

* 

, - 

* 

, 

I 


* 

* 

. 

, 


28. 

system  of  regulation  not  only  for  the  protection  of  the  public 
but  partly  to  protect  the  utility  from  the  abuses  of  the  public. 

The  obligations  of  public  service  corporations  are  three- 
fold. First,  they  should  furnish  an  adequate  and  sufficient 
service.  Second,  such  service  should  be  furnished  at  rates  which 
are  reasonable  to  all  classes  of  consumers.  Third,  these  cor- 
porations owe  to  the  public  from  which  their  rights  to  operate 
are  derived  and  from  which  must  come  funds  for  their  construction, 
the  obligation  to  treat  it  fairly  in  the  issue  of  their  securi- 
ties. First  of  all  then  there  must  be  a set  of  standards  for 
adequate  service.  A certain  level  of  efficiency  based  upon  the 
best  resulting  economies  must  be  maintained.  Thorough  inspections 
and  constant  supervision  must  be  carried  out. 

The  functioning  of  electric  utilities  has  created  a need 
for  the  establishment  of  maximum  and  minimum  voltage  limits 
assuring  efficient  use  of  the  consumers*  lamps,  motors  and  ap- 
pliances. Meters  should  be  periodically  inspected  and  tested. 
Consumers  should  be  given  information  as  to  the  conditions  under 
which  their  equipment  can  give  the  most  efficient  results.  The 
requirements  for  gas  service  must  be  a heating  value  standard 
that  will  guarantee  adequate  cooking  and  lighting  qualities. 

The  pressure  standard  must  be  fixed  and  the  amount  of  different 
constituents  in  the  gas  must  be  prescribed  not  only  for  the  sake 
of  service,  but  for  the  protection  of  life  and  property  of  the 
consumers.  Telephone  regulation  involves  the  requirement  of  an 
adequate  standard  of  service  and  elimination  of  unnecessary  de- 
lays in  answering  calls  and  making  connections.  Regulation  of 
water  utilities  covers  such  matters  as  adequacy  of  fire  pressure. 


' ■ 

, ' • : 

. . 


- 

f 

' 

% 

* 

’ , . 

* - 

» ' 

* 


29. 


sufficiency  of  pressure  for  domestic  uses,  purity  of  water  supply, 
accuracy  of  meters  and  adequacy  of  the  source  of  supply.  Demands 
for  extensions  of  gas  and  water  mains  and  electric  lines  must  be 
passed  upon  and  the  ability  of  a plant  to  earn  a reasonable  return 
has  to  be  considered  in  connection  with  proposed  extensions.  Ex- 
pert theories  of  additional  cost  as  against  a basis  for  adequate 
return  on  the  entire  investment  are  problems  too  comprehensive  to 
be  delegated  to  local  prejudiced  and  unqualified  authorities.  In 
the  street  railway  field  are  many  equal  technical  details  to  be 
taken  into  consideration  when  increase  service,  line  extensions 
or  rate  changes  are  demanded.  It  is  recognized  further  that  the 
utility  should  not  be  allowed  to  exact  more  than  a reasonable 
rate  and  the  security  must  bear  a proper  relation  to  the  property 
represented.  There  is  an  implied  obligation  on  the  part  of  the 
public  that  the  investment  devoted  to  the  service  under  regula- 
tion shall  be  protected.  For  the  just  enforcement  of  these 
obligations  some  agency  must  be  responsible.  There  can  be  no 
guess  work  or  snap  judgment  or  prejudice  or  political  expression 
in  regulation.  The  community  and  national  Interests  involved 
are  too  important  to  permit  haphazard  work. 

Regulation  vs.  Competition 

It  was  only  natural  that  In  the  early  periods  of  develop- 
ment a form  of  regulation  was  to  be  found  in  competition.  The 
theory  of  competition  as  practiced  in  the  utility  business  has 
been  found  unsound  in  that  duplication  of  equipment  and  mainte- 
nance costs  resulting  therefrom  have  made  it  economically  in- 
advisable to  throw  the  field  open  to  this  form  of  regulation. 

There  is  still  competition  in  telephone  service  in  a good  many 


? : 

- 

i 

. 

- 

, 

- 

, 

’ 

♦ 


: aBsaa.d'j  ■ jt-  ■ ■■-  "■  ■■■-  ■ - »■■■  — ■ ■■  ■'  ~~~  ' ■■  ~ '■  ■ ..  ; 

30. 

localities.  If  regulation  by  a central  body  properly  functions, 
there  is  no  need  for  duplication  as  in  competitive  practice.  Of 
all  industries  the  telephone  utility  business  has  been  recognized 
as  standing  foremost  as  a natural  monopoly.  We  have  all  visited 
towns  where  two  or  three  telephone  systems  have  no  physical  con- 
nection. We  have  found  it  necessary  to  go  to  two  or  three  differ- 
ent locations  in  order  to  talk  directly  to  the  parties  in  demand. 

The  business  man  finds  it  necessary  to  pay  for  service  from  two  or 
three  different  companies  in  order  to  secure  the  business  of  all 
the  public. 

There  was  early  recognized  the  monopolistic  characteris- 
tics of  the  public  utility  enterprises  and  with  the  development 
of  correct  public  thinking  a demand  arose  for  the  establishment 
of  some  sort  of  regulation  by  properly  selected  bodies.  It  is 
only  through  the  encouragement  and  protection  of  just  and  reason- 
able laws,  rules  and  regulations  established  through  the  instru- 
mentalities of  unbiased  bodies  of  experts  that  the  public  utility 
industry  has  been  stabilized  and  the  utilities  made  recipients  of 
a large  amount  of  the  capital  of  the  people.  Millions  of  people 
in  the  United  States  directly  or  indirectly  have  interest  in 
public  utility  securities.  This  capital  attracted  by  the  recog- 
nized stability  of  the  industry  has  made  possible  the  provision 
of  public  utility  service  in  almost  every  city  and  village  in  the 
United  States  and  has  brought  the  telephone  and  electric  facili- 
ties into  a large  number  of  rural  communities.  These  investments 
should  be  safeguarded.  It  Is  in  the  interest  of  the  utilities, 
and  of  the  public  as  well,  that  provision  for  any  class  of  public 
utility  service  be  confined  to  one  agent.  It  makes  for  economy. 


, 

- 

, 

; 


, 

- 

- '• 


" 


. 


, 

* 

* ’ ' : 


31 


It  is  also  in  the  interest  of  the  utilities  and  the  public  that 
the  regulation  employed  be  such  as  to  attract  capital  and  make 
for  the  most  efficient  and  economical  use  of  the  facilities  em- 
ployed. 

Source  of  Regulatory  Power 

I assume  therefore  that  there  will  be  no  argument  against 
the  statement  that  there  must  be  somewhere  vested  the  authority 
and  ability  to  solve  the  intricate  problems  of  public  utilities 
to  the  end  that  the  shortcomings  may  be  discovered  and  the  cor- 
rect remedies  applied.  The  authority  to  regulate  public  service 
enterprises  has  always  rested  in  sovereignty,  which  means  under 
our  form  of  government  that  whatever  power  is  or  may  be  exercised 
by  a city,  village  or  town  over  public  service  corporations  must 
be  specifically  granted  to  it  by  the  Legislature.  Exercise  of 
any  regulatory  power  by  the  State  then  cannot  operate  to  deprive 
cities,  villages  or  towns  of  a power  v/hich  they  never  possessed. 
The  Supreme  Court  itself  has  repeatedly  answered  the  question  of 
the  right  of  a state  to  delegate  to  such  authority  as  it  chooses 
the  right  to  administer  the  affairs  of  the  state.  The  following 
Supreme  Court  opinion  is  typical  of  those  frequently  expressed 
by  that  body: 

"Over  all  public  and  governmental  powers 
exercised  by  the  municipal  corporation,  the  cor- 
poration acts  as  the  agent  of  the  State  and  the 
State  is  essentially  supreme." 

State  vs.  Local  Regulation 

The  treatment  of  this  subject  necessarily  centers  around 
the  question  of  the  relative  merits  of  state  or  centralized 
regulation  and  local  regulation.  Sincere  opposition  to  state 


■ . • 

)■ 

l 


' 


• 

, 

’ 

. 


• ' 


~ 


■ 


. 


32. 

regulation  is  entitled  to  a respectful  hearing  and  fair  treatment 
as  is  a sincere  defense  of  it.  Probably  the  most  severe  indict- 
ment of  state  or  centralized  regulation  of  public  utilities  as 
voiced  by  its  opponents  may  be  summed  up  in  the  statement,  "State 
regulation  is  wrong  in  principle  because  it  deprives  the  cities, 
villages  and  towns  of  the  right  and  power  to  administer  certain 
of  their  own  local  affairs  and  thus  tends  to  destroy  civic  pride 
and  responsibility." 

An  analysis  of  any  comprehensive  study  reveals  the  fact 
that  cities  seek  to  enforce  obsolete  and  impossible  franchise 
terms,  and  yet  in  the  face  of  this  we  find  cities  making  un- 
reasonable demands  that  the  State  in  its  regulation  of  public 
utilities  require  that  franchise  requirements  be  held  inviolate. 
It  is  a matter  of  common  information  that  operation  under  fran- 
chises keeps  utilities  in  local  politics,  and  we  believe  that 
the  demand  for  local  regulation  now  being  made  by  certain  ele- 
ments is  an  outgrowth  of  public  misunderstanding.  Municipali- 
ties are  in  no  position  to  regulate  issuances  of  securities  and 
certainly  in  no  position  to  attempt  regulation  of  those  utilities 
extending  their  fields  outside  the  municipal  limits,  which  in 
this  era  is  undoubtedly  true  of  a large  percentage  of  the  total. 
Cities  encourage  wasteful  competition  between  utility  companies. 
The  utility  regulation  is  not  deemed  a function  of  local  govern- 
ment and  it  has  been  demonstrated  beyond  all  reasonable  doubt 
that  cities  are  unable  to  carry  on  work  now  performed  by  State 
commissions,  nor  are  they  able  to  bear  the  expense  of  efficient 
utility  regulation  even  if  they  were  competent  to  conduct  the 
work.  Should  the  State  choose  then  to  leave  in  the  hands  of  the 
municipalities  the  question  of  regulation  of  rates  and  service  of 


■ 


. 

- 

- 

- 

- 

’ 

- 

. 

, 


33 


public  utilities,  it  is  the  usual  condition  of  affairs  that  the 
city  could  not  afford  the  expense  of  a body  equipped  and  qualified 
to  intelligently  determine  the  reasonableness  of  a rate  or  quality 
of  service  and  establish  standards  therefor#  When  analyzed  in 
every  detail  we  are  unable  to  cite  any  clear  outstanding  reason 
why  public  utilities  should  be  locally  controlled,  and  we  believe 
that  the  political  demands  for  such  local  regulations  appeal  pri- 
marily to  the  selfish  motives. 

Utilities  rapidly  outgrew  the  condition  of  being  local  ser- 
vants • Telephone  lines  extended  from  state  to  state,  coast  to 
coast,  and  throughout  rural  communities.  Even  the  local  lines 
emanating  from  the  exchanges  in  the  towns  or  cities  served  sub- 
scribers outside  the  corporate  limits  as  well  as  inside.  Electric 
and  gas  central  station  plants  began  serving  many  communities  from 
one  large  plant-  often  as  many  as  one  to  two  hundred.  Transporta- 
tion systems  ran  outside  cities;  in  fact,  most  of  the  business 
was  often  conducted  between  municipalities,  leaving  but  a small 
amount  of  the  business  to  be  conducted  within  the  city.  Persons 
living  within  a radius  of  one  hundred  miles  or  more  of  a central 
station  might  be  affected  by  its  services,  and  rebelled  against 
accepting  regulation  provided  by  municipal  authorities  of  the  town 
or  city  where  the  central  plant  might  happen  to  be  located.  A 
state-wide  interest,  not  a local  one,  immediately  came  into  exist- 
ence. Cities  and  villages  found  that  if  they  were  individually 
to  attempt  regulation  of  rates  and  service,  each  would  have  to 
create  commissions  of  highly  skilled  experts,  and  that  there  would 
probably  be  continuous  conflict  between  the  commissions  of  the 
various  municipalities.  It  would  still  leave  the  utility  without 


, 

. 

, 

, 


* 


, 

. 

. 


. . . - 

. 

. 


34 


regulation  outside  the  city  limits.  That  the  state  acting  for 
all  the  cities  and  for  all  its  citizens  having  voting  power  is 
better  situated  to  undertake  such  regulation  than  the  cities  act- 
ing independently  is  no  longer  open  to  serious  consideration. 

Home  Rule 

When  so  empowered  by  the  Legislature  a municipality  may,  of 
course, undertake  local  regulation.  It  may  provide  regulations 
in  its  franchise,  it  may  regulate  by  ordinance  or  pass  new  ordi- 
nances as  the  occasion  demands  to  meet  new  situations.  It  may 
create  a local  board  or  commission.  As  we  have  already  seen, 
however,  any  one  of  these  methods  would  be  incompetent  to  cope 
with  the  situation  where  the  system  extends  beyond  the  municipal 
limits  . 

The  law  has  established  protection  to  property  and  it  is 
a narrow  minded  assumption  to  consider  that  a question  of  rates 
or  quality  of  service  can  be  determined  by  anybody  at  any  time. 
Facts,  not  guess  work,  must  govern  regulation.  If  a local  com- 
mission or  a common  council  that  has  been  given  the  power  to  do 
so  should  fix  a rate  for  a public  service  corporation,  it  must 
be  able  to  prove  in  court  that  the  rate  fixed  is  reasonable. 

The  Home  Rule  exponent  is  too  often  mistaken  in  his  impression 
of  what  constitutes  liberty  of  action.  Does  he  think  that 
privileges  granted  him  by  virtue  of  citizenship  in  a free  coun- 
try are  curtailed  because  he,  as  a member  of  a city  council,  can- 
not dictate  that  the  local  utility  shall  furnish  transportation 
for  five  cents,  electricity  for  seven  cents  a kw-hr.,  or  gas  at 
eighty  cents  per  thousand  cubic  feet?  Without  pausing  to  comment 
on  the  legal  right  of  a State  to  delegate  through  its  legislators 


* 

, 


. 


» 


: ' 


- 

. 

£ 

. 

* 

• 

• 

. 

. , 

. 


35 


to  an  organization  of  expert  engineers  and  accountants,  let  us  deal 
merely  with  the  business  aspect  of  the  problem  and  note  the  fal- 
lacy of  the  theory  or  belief  that  a public  good  is  done  by  reduc- 
ing a public  utility's  rates  below  that  necessary  to  give  a return 
which  will  attract  capital  and  permit  the  business  to  prosper,  A 
quotation  from  the  United  States  Supreme  Court  is  here  pertinent: 

"Our  social  system  rests  largely  upon  the 
sanctity  of  private  property;  and  that  state  or 
community  which  seeks  to  invade  it  will  soon  dis- 
cover the  error  in  the  diaster  that  follows.  The 
slight  gain  to  the  consumer  which  he  would  obtain 
from  a reduction  in  the  rates  charged  by  public 
service  corporations  is  as  nothing  compared  with 
his  share  in  the  ruin  which  would  be  brought  about 
by  denying  to  private  property  its  just  reward, 
thus  unsettling  values  and  destroying  confidence." 

Assume,  however,  that  a municipality  possessed  an  unlimit- 
ed right  to  reduce  rates  and  no  redress  were  possible  in  court. 

The  abuse  of  such  practice  would  soon  demoralize  the  industry  and 
break  the  back  bone  of  its  business  in  the  community.  The  local 
utility's  business  is  not,  can  not  be,  foreign  to  us.  Consider 
the  innumerable  benefits  it  brings  to  us  which  we  could  not  pos- 
sibly enjoy,  and  without  which  our  home  nurtured  businesses  would 
not  find  it  possible  to  compete  with  the  world.  An  illuminating 
engineer  has  recently  said:  "A  well  lighted  city  will  stabilize 

business,  increase  the  value  of  real  estate,  reduce  crime,  and 
bring  in  more  people  as  visitors,  investors  and  buyers  of  the 
town's  product."  He  might  have  added  that  without  electric  power 
industries  could  never  be  attracted  to  a city.  Without  it  we 
cannot  live  as  a cog  in  the  machinery  of  industry.  We  are  living 
and  working  not  alone  for  ourselves  but  also  for  those  who  are, 
and  are  to  become,  our  own,  and  for  all  others  in  so  far  as  their 
interests  and  their  welfare  are  common  with  ours  or  affected  by 


- 

. ' 

. 

* 

* 


- 


* 

. 

• « 

• 

, 

* 

* 

* 

\ 

i 

36* 

ours*  W © must  not  lose  sight  of  the  fact  that  our  individual  wel- 
fare is  so  related  to  the  welfare  of  the  aggregate  that  we  can  not 
but  heap  injury  upon  ourselves  by  stimulating  agitation  against 
any  branch  of  industry  with  a view  or  effect  of  dwarfing  it.  This 
is  especially  true  of  public  utilities.  Not  to  mention  the  direct 
financial  effect  on  the  holders  of  public  utilities'  stock  and  se- 
curities, there  is  a broader  effect,  and  a very  vital  one,  upon 
the  welfare  of  the  community  in  which  we  live.  A further  damage 
to  our  business  or  that  of  our  neighbor  merchant  or  manufacturer 
would  be  caused  by  discouraging  extensions  or  preventing  develop- 
ment of  the  sources  of  those  public  utility  commodities  upon 
which  the  welfare  of  our  community,  of  the  State,  or  of  the 
Nation  depends.  This  is  the  true  phi li sophy  by  which  those  who 
are  sane  and  intelligent  and  conscientious  are  guided.  Upon  such 
philisophy  are  based  all  economies,  all  developments  and  all  pru- 
dent action. 

Invalidity  of  Ordinance  Contracts 

There  seems  to  be  prevalent  throughout  the  state,  especial- 
ly at  this  time,  an  impression  that  if  given  Home  Rule  city  au- 
thorities can  make  rates  that  will  be  binding,  whereas  the  funda- 
mental principle  of  the  constitution  has  established  the  fact 
that  the  courts  will  give  relief  where  it  is  necessary.  Home 
Rule  means  nothing  in  making  firm  and  stable  rates  for  any  speci- 
fied period  if  conditions  warrant  a change  in  those  rates.  It  is 
the  contention  of  certain  city  authorities  that  rates  should  be 
fixed  in  accordance  with  franchise  ordinances  and  that  these 
rates  should  exist  without  change  during  the  life  of  the  ordi- 
nance. Even  though  the  proper  authority  were  delegated  to  the 


- 





37 


cities  by  the  state,  no  community  could  fix  a franchise  rate  that 
could  not  be  changed  when  conditions  warrant. 

It  has  been  repeatedly  held  by  the  Public  Utilities  Commis- 
sion of  Illinois  that  under  the  Public  Utilities  Act  the  Commission 
has  power  over  rates  and  service  of  public  utilities  regardless  of 
provisions  contained  in  ordinances  or  contracts.  The  case  of  the 
City  of  Chicago,  et  al,  appelle,  vs.  Wm.  L.  O’Connell,  et  al,  grew 
out  of  an  order  entered  by  this  Commission  relative  to  service  of 
street  cars  operated  by  the  Chicago  City  Railway  Company  and  the 
Chicago  Railway  Company  in  the  city  of  Chicago.  In  passing  on 
this  matter  the  Supreme  Court  held: 

"The  regulation  of  public  utilities  is  one 
phase  of  the  exercise  of  the  police  power  of  the 
State.  The  police  power  may  be  exercised  by  the 
Legislature  directly,  or  it  may  be  exercised  in- 
directly by  conferring  the  power  on  agencies 
created  by  the  Legislature.  The  power  is  an  at- 
tribute of  soveriegnty  and  is  primarily  vested 
in  the  Legislature,  which  has  the  right  to  re- 
call at  any  time  from  the  agency  to  which  it  has 
been  delegated,  and  after  being  recalled  to  retain 
it  or  confer  it  upon  some  other  agency  of  govern- 
ment. In  the  exercise  of  this  power  the  State  may 
interfere  whenever  the  public  interests  demand 
such  interference,  and  in  this  particular  a large 
discretion  is  necessarily  vested  in  the  Legislature 
to  determine  not  only  what  the  interests  of  the 
public  require,  but  what  measures  are  necessary  for 
the  protection  of  such  interests." 

A contract  between  a public  utility  and  a consumer  may  be 
considered  analogous  to  a contract  ordinance.  In  the  case  of  the 
Union  Dry  Goods  Company  v.  Georgia  Public  Service  Corporation 
the  United  States  Supreme  Court  held: 

"It  is  settled  that  neither  the  * contract’ 
clause  nor  the  ’due  process*  clause  has  the  effect 
of  overriding  the  power  of  the  State  to  establish 
all  regulations  and  are  reasonably  necessary  to 
secure  the  health,  safety,  good  order,  comfort,  or 
general  welfare  of  the  community;  that  this  power 


» 

■ 


. 

, 

- 

1 

, 

• 

* 

r 

* 

, 


. 

38 


can  neither  be  abdicated  nor  bargained  away,  and  is 
inalienable  even  by  express  grant;  and  that  all 
contract  and  property  rights  are  held  subject  to  its 
fair  exercise." 

We  firmly  believe  that  franchises,  if  enforced,  would  in 
the  main  cause  more  dissatisfaction  due  to  the  absurd  and  impos- 
sible provisions  existing  in  most  franchises  than  now  exists  on 
the  part  of  municipalities  on  account  of  the  alleged  curtailment 
of  municipal  privileges. 

State  Regulation 

It  has  therefore  been  recognized  that  the  utility  is 
charged  with  a public  duty,  and  therefore  should  be  regulated  by 
the  public,  and  that  the  public  in  turn  owes  a duty  to  the  indus- 
try which  is  regulated.  It  is  recognized  that  this  regulation 
could  not  be  secured  and  enforced  without  the  creation  of  semi- 
judicial  bodies  clothed  with  the  wide  powers  of  investigation, 
composed  of  men  having  a judicial  sense  of  fairness  and  employing 
men  highly  skilled  and  experienced  in  their  line  of  technical  or 
accounting  work.  So  generally  is  this  condition  now  understood 
that  within  the  last  fifteen  years  forty  two  states  have  created 
commissions  with  ample  authority  to  protect  both  the  public  and 
the  industries  to  the  end  that  rates  for  the  necessities  of  life 
supplied  by  these  industries  shall  at  all  times  be  reasonable, 
free  from  discrimination  and  adjusted  to  yield  a reasonable  return 
on  the  fair  value  of  the  property. 

Purpose  of  Regulation 

The  regulating  body  must  first  undertake  to  determine  what 
is  essential  to  good  service,  or,  in  other  words,  what  the  user 
of  the  commodity  really  needs,  keeping  in  mind  always  that  the 


. 


, 


* 


» 

. 


* 

, 


* 


. 


, 


39 


maximum  service  for  each  unit  cost  to  the  user  is  one  of  the 
first  essentials  in  establishing  standards.  All  of  the  items 
hereinbefore  mentioned  should  be  given  consideration,  the  util- 
ities should  be  informed  of  the  requirements,  and  facilities  for 
determining  quality  of  service  provided  by  both  the  regulating 
body  and  the  utilities.  In  general,  the  purpose  of  the  regula- 
tion should  be  to  insure  (1)  adequate  and  continuous  supply  at 
all  times  and  for  all  parts  of  the  territory  served;  (2)  safety 
for  the  users  of  the  commodity  and  for  the  general  public;  (3) 
proper  maintenance  of  the  producing  plant  and  the  distribution 
system;  (4)  intelligent  conservation  of  national  wealth  in  coal, 
oil,  gas,  and  other  natural  resources  of  the  country;  and  (5) 
fair  return  to  the  operating  company. 

Establishment  of  Service  Standards 

One  of  the  first  important  duties  of  a body  attempting 
regulation  of  service  is  the  establishment  of  standards  of  serv- 
ice. The  Illinois  Public  Utilities  Commission  Law  contains  the 
following  provision: 

"The  commission  shall  have  power  to  ascertain, 
determine  and  fix  for  each  kind  of  public  utility 
suitable  and  convenient  standard  commercial  units 
of  service,  product  or  commodity,  which  units  shall 
be  lawful  units  for  the  purpose  of  this  act;  to  as- 
certain, determine  and  fix  adequate  and  serviceable 
standards  for  the  measurement  of  quantity,  quality, 
pressure,  initial  voltage  or  other  condition  pertain- 
ing to  the  performing  of  its  service  or  to  the  fur- 
nishing of  its  product  or  commodity  by  any  public 
utility,  and  to  prescribe  reasonable  regulations  for 
examining,  measuring  and  testing  such  service,  pro- 
duct or  commodity,  and  to  establish  reasonable  rules, 
regulations,  specifications  and  standards  to  secure 
the  accuracy  of  all  meters  and  appliances  for  examin- 
ing, measuring,  or  testing  such  service,  product  or 
commodity. " 

In  1914  the  Public  Utilities  Commission  of  Illinois 


40 


established  a set  of  rules  and  regulations  establishing  standards 
of  service  for  gas  and  electric  utilities  and  subsequently  es- 
tablished standards  for  water  and  telephone  utilities.  From  time 
to  time  consideration  has  been  given  to  the  need  for  making  cer- 
tain changes  and  amendments  in  the  requirements,  and  such  modi- 
fications and  additions  have  been  made  as  the  conditions  appear 
to  warrant. 

Inspections  and  Investigations 

A corps  of  specialized  engineers  was  early  organized  and  a 
system  of  inspection  throughout  the  State  instituted.  Investi- 
gations are  made  upon  complaint  or  upon  the  Commission^  own 
motion.  They  may  be  "special''  for  determining  whether  the  grade 
of  service  is  commensurate  with  an  established  or  proposed  rate 
or  may  be  "routine"  to  determine  the  general  character  of  serv- 
ice and  degree  of  compliance  with  the  Commissions  requirements. 

It  is  the  function  of  the  service  inspector  to  make  a 
study  of  the  various  subjects  discussed  hereinbefore  and  to  ob- 
tain such  thorough  knowledge  of  each  that  he  is  able  to  assign 
a grade  which  will  fairly  represent  the  degree  of  perfection  at- 
tained. He  must  examine  voltage  and  pressure  charts,  look  over 
the  distribution  system  of  an  electric  utility  or  examine  maps 
to  determine  points  where  the  gas  or  water  pressure  is  likely 
to  be  low,  and  make  a study  of  the  pressure  at  such  points.  If 
it  appears  advisable  he  makes  tests  of  the  service  without  know- 
ledge of  the  utility.  This  is  especially  advisable  if  a fair 
idea  is  to  be  obtained  of  the  average  conditions  prevailing  when 
the  voltage  is  hand  regulated  and  it  is  also  true,  perhaps  to  a 
lesser  extent,  when  a determination  of  the  heating  value  of  gas 


r 

- 

, ■ 

- ' 

- ' ^ ‘ 


. 


- 


- 

\ 


. 


■ 


, 

. 

- 


41 


Is  to  be  made.  There  is  a human  trait  in  each  one  of  us  which 
by  nature  calls  upon  us  to  put  our  best  foot  forward  and  to  con- 
duct ourselves  in  such  a manner  as  to  make  the  best  impression. 
For  instance,  if  a utility  representative  is  aware  that  an  in- 
spector is  making  tests  of  the  system  voltage,  it  would  be  only 
human  for  him  to  put  forth  a little  more  effort  to  see  that  bet- 
ter conditions  of  voltage  prevail. 

The  investigator  should  interview  city  authorities  and 
representative  consumers.  There  are  often  feelings  of  dissatis- 
faction on  account  of  action  taken  by  the  utility  which  may  not 
be  revealed  through  an  examination  of  the  utility’s  records  or 
by  an  inspection  of  its  service.  It  may  have  to  do  with  conduct 
of  the  utility  in  matters  which  could  not  possibly  come  to  the 
attention  of  an  inspector.  Inspections  are  made  of  the  records 
to  determine  the  quality  and  progress  of  the  meter  testing  and 
some  tests  are  possibly  supervised.  In  case  telephone  service 
is  being  investigated,  a number  of  calls  are  made  with  a view  of 
determining  the  promptness  of  operators,  their  phraseology,  and 
the  accuracy  of  connection.  Inspections  may  be  made  in  a few 
hours  or  may  require  several  days.  It  is  usually  necessary  in 
order  to  get  a fair  idea  of  the  service  to  continue  the  investi- 
gation through  at  least  one  peak  period. 

Results  not  Methods  to  be  Prescribed 

In  the  establishment  of  service  standards  the  Commission 
is  prescribing  results  and  not  methods  by  means  of  which  the 
results  are  to  be  obtained.  The  Supreme  Court  has  held  that  a 
commission  has  no  authority  to  interfere  with  the  broad  dis- 
cretionary powers  of  utilities  in  the  conduct  of  the  details  of 


- 


, 

- 

, 

, 

, 

. 

. . 

, 

. 

, 


, 

■* 


42 


their  business,  considering  that  that  is  a problem  which  is  to 
be  determined  by  the  utility  itself  as  it  is  to  be  the  sole 
judge  of  the  manner  in  which  results  are  to  be  obtained. 

In  accordance  with  the  decision  of  the  Supreme  Court  only 
the  results  to  be  accomplished  by  the  companies  may  be  prescrib- 
ed and  the  companies  are  permitted  to  bring  about  these  results 
by  any  means  which  they  may  choose  to  employ#  The  operating 
engineer  is  generally  in  a much  better  position  to  determine  the 
most  economical  methods  of  procedure  than  is  the  technical  staff 
of  the  regulating  body.  There  are  exceptional  cases  in  which 
the  regulatory  authorities  find  it  necessary  to  overrule  the 
choice  of  methods  employed  by  the  company.  For  instance,  an 
electric  utility  may  be  required  to  maintain  a standby  plant, 
possibly  under  sufficient  steam  to  operate  the  machinery  if  serv- 
ice from  a transmission  line  is  unsatisfactory  or  inadequate. 

It  may  be  necessary  to  make  occasional  suggestions  as  to  the 
methods  rather  than  to  order  the  specific  procedure  by  which  the 
improvement  is  to  be  effected. 


— N 


’ ■ 


1 


♦ 

: ' ■ : ‘ . ;• 


: 

43. 


V. 

DETERMINATION  OF  COMPARATIVE  VALUE 
OF  SERVICE 

Need  for  Service  Rating 

In  connection  with  our  extensive  study  of  service  matters 
throughout  the  State,  we  have  seen  a need  for  comparing  gas  and 
electric  service  in  various  communities.  The  necessity  for 
such  development  arose  out  of  the  fact  that  it  was  difficult, 
practically  impossible,  to  state  specifically  in  any  manner  how 
the  service  of  one  utility  or  in  one  town  compared  with  that  in 
another  community  although  there  appeared  a need  for  such  com- 
parison. In  one  town  the  continuity  may  be  good  and  voltage 
regulation  poor.  In  the  community  with  which  comparison  is 
desired  the  voltage  regulation  may  be  good  and  the  continuity 
of  service  unsatisfactory.  In  many  respects  the  service  In  one 
might  be  better  than  that  in  the  other,  while  in  other  respects 
the  service  in  the  other  may  be  better  than  in  the  first.  In 
the  absence  of  some  form  of  abstract  grading  we  have  not  been 
able  to  answer  intelligently  an  inquiry  as  to  the  relative 
standing  from  the  service  point  of  view  of  two  utilities.  It 
was  therefore  found  necessary,  if  comparison  was  to  be  made, 
to  develop  a method  that  would  give  some  means  of  determining 
the  relative  grade  of  service  in  the  two. 

It  has  been  the  usual  practice  of  inspectors  employed  by 
regulatory  bodies  to  report  a rule  either  as  violated  or  as 
complied  with.  This  must  necessarily  be  true.  For  instance, 
if  a few  meter  tests  are  overdue,  technically  speaking,  the 
rule  is  violated  and  must  be  reported  as  such.  The  result  is. 


44 


a large  number  of  rules  may  be  reported  as  violated  when  the 
service  is  truly  good.  The  number  of  rules  violated  does  not, 
therefore,  fairly  indicate  the  character  of  service  rendered. 
Frequent  interruptions  of  service  is  a violation  of  one  of  the 
rules  as  is  failure  to  properly  record  two  runs  during  a meter 
test.  But  obviously  the  first  far  outweighs  the  other  in  im- 
portance. Actual  conditions  of  service  are  manifestly  much  more 
important  than  are  the  records  indicating  the  conditions  of 
service,  and  yet  either  may  violate  a rule.  In  other  words,  it 
is  a violation  of  a rule  if  the  continuity  of  service  is  un- 
satisfactory. It  is  also  a violation  of  a rule  to  keep  no  rec- 
ord of  interruptions,  although  the  interruptions  may  be  exceed- 
ingly rare.  One  violation  is  more  serious  however,  and  the 
utility  should  not  be  given  the  same  amount  of  discredit  or 
criticism. 

Grading  of  Service 

The  plan  as  developed  and  shown  hereinafter  in  detail 
shows  at  a glance  the  degree  of  perfection  attained  in  each 
phase  of  service  as  each  is  given  a grade.  To  take  care  of  the 
relative  greater  importance  of  one  over  the  other,  the  grade  as 
assigned  by  the  engineer  is  multiplied  by  a given  weight,  the 
value  of  which  depends  on  the  importance  of  the  factor.  For 
instance,  a constant  of  30  is  given  where  continuity  of  service 
is  graded,  whereas  5 has  been  chosen  for  use  where  records  are 
considered.  The  total  of  the  weights  is  100,  so  that  the  var- 
ious grades  may  be  multiplied  by  the  respective  constants  and  the 
products  added.  The  final  result  so  obtained  is  divided  by  100 
to  give  the  resultant  grade  of  service.  It  would  seem  upon  first 


. 

* 


, 

. 

. 


, 


- 


. 

. 


* 


45 


thought  that  an  adequate  method  could  not  be  devised  on  account 
of  the  large  number  of  varying  conditions  and  the  different 
opinions  of  inspectors.  It  is  a matter  of  common  knowledge, 
however,  that  grading  systems  upon  which  dependence  is  placed 
are  used  in  schools  and  colleges,  although  the  course  of  study 
may  be  entirely  different  and  taken  under  different  instructors. 
Did  we  not  know  that  grading  systems  are  in  use  we  might  say 
that  a grading  system  could  not  be  satisfactorily  used  in  edu- 
cational institutions.  Of  course,  no  grading  system  can  be 
devised  except  it  be  dependent,  more  or  less,  upon  the  judgment 
of  certain  individuals  and  upon  approximations,  but  the  method 
herein  explained  has  worked  very  satisfactorily. 

The  forms  used  in  grading  gas  and  electric  service  are  re- 
produced below.  They  are  stenciled  on  the  back  of  the  routine 
inspection  sheets  (see  Plates  V and  VI)  and  the  grading  is 
done  by  the  engineer  making  the  investigation.  The  grades 
are  checked  against  the  report  to  insure  uniformity  of  opinion. 
This  checking  is  done  by  some  one  other  than  the  engineer  mak- 
ing the  investigation.  The  forms  show  the  items  that  are 
taken  into  consideration  and  the  relative  weights  assigned. 
Grades  have  been  assumed  for  the  various  factors  and  the  grad- 
ing carried  out  to  illustrate  the  manner  in  which  the  form  is 
filled  out  at  the  time  of  the  inspection. 


46 


The  following  form  is  used  in  grading  service  of  gas 
utilities . 


Conditions  of  Service 

Weight 

Grade 

Weighted 

Score 

Pressure ( Including  interruptions ) 

30 

96 

2.9  40 

Heating  Value 

15 

90 

/ 3 SO 

Handling  of  Complaints 

lo 

es 

6 3s O 

Purity 

5 

70 

3SO 

Meter  Testing 

5 

40 

2 00 

Construction  and  Maintenance 

5 

60 

300 

Adequacy  of  Capacity 

Provisions  for  Emergency 

Adjustment  of  Bills 

5 

60 

300 

Information  on  Bills 

Extension  'Policy 

Furnishing  New  Service 

Consumers*  Attitude 

6 

6o 

400 

Records 


Record  of  Interruptions 

70 

3 SO 

Pressure  Surveys  and  Records 

O 

Records  of  Heating  Value 

70 

3 SO 

Records  of  Purity 

0 

Records  of  Meters  and  Tests 

5 

/ OO 

SOO 

Records  of  Complaints 

5 

O O 

000 

Final  Grade  7q.9o 


47 


The  following  form  is  used  in  grading  service  of  elec- 
tric utilities. 


Conditions  of  Service 

Weight 

Grade 

Weighted 

Score 

Continuity  of  Service 

30 

95 

2650 

Voltage  Regulation 

15 

GO 

1200 

Handling  of  Complaints 

10 

GO 

GOO 

Meter  Testing 

...  . g 

70 

3 50 

Construction  and  Maihtenance 

5 

90 

4 50 

Adequacy  of  Capacity 

c 

65 

425 

Provisions  for  Emergency 

o 

Adjustment  of  Bills 

Ini' ormat ion  on  Bills 

5 

50 

250 

Extension  Policy 

Furnishing  New  service 

Consumers1  Attitude 

5 

QO 

400 

Records 


Record  of  Interruptions 

: 5 

: 40 

200 

Voltage  Surveys  and  Records 

: 5 

: o 

: ooo 

Records  of  Meters  and  Tests 

: o 

: qo 

: 400 

Record  of  Complaints 

: 

: 50 

: 2 50 

Final 

Grade 

7&75 

48. 

In  order  to  insure  uniformity  of  opinion  and  so  far  as 
possible  to  eliminate  the  element  of  personal  judgment,  the  fol- 
lowing instructions  have  been  prepared  for  use  in  grading  serv- 
ice of  electric  utilities. 

Continuity  of  Service 


Few  short  interruptions,  at  time  when  least 

serious,  deduct  0 to  3^ 

Few  long  interruptions,  at  time  when  least 

serious,  deduct  5$ 

Few  short  interruptions,  at  time  when  most 

serious,  deduct  10$ 

Few  long  interruptions,  at  time  when  most 

serious,  deduct  20$ 

Many  short  interruptions,  at  time  when  least 

serious,  deduct  20$ 

Many  long  interruptions,  at  time  when  least 

serious,  deduct  30$ 

Many  short  interruptions,  at  time  when  most 

serious,  deduct  40  to  50$ 

Many  long  interruptions,  at  time  when  most 

serious,  deduct  50  to  75$ 

For  failure  to  notify  Commission  of  inter- 
ruptions , deduct 15$ 

For  failure  to  notify  consumers  of  contem- 
plated interruptions,  deduct  ..  10$ 

Note:  If  no  records  of  interruptions  are 

kept,  give  not  more  than  90$ 


Voltage  Regulation 

To  determine  reduction  in  grade  where  voltage  regulation 
for  lighting  purposes  is  unsatisfactory,  multiply  per  cent  of 
total  consumers  affected  by  1 to  5,  depending  on  degree  and  fre- 
quency of  violation.  Use  the  following  constants  where  daily 
variation  is  beyond  limits  allowable  for  lighting  service. 

If  1-5  per  cent  outside  limits,  use  constant  1 
If  6 -10  " " " " " " 2 

If  11  -15  " " " " » » 3 

If  16  -20  " " " " " " 4 

If  21  -25  " " " " ” " 5 


49 


To  determine  reduction  where  voltage  variation  for  power 
purposes  is  unsatisfactory,  multiply  the  per  cent  of  total  con- 
sumers (lighting  and  power)  affected  by  2 to  10,  depending  on 
seriousness  of  violation. 

Note:  If  no  records  of  results  of  utility* s sur- 

vey are  available,  give  not  more  than  ....  90$ 
Handling  of  Complaints 

Grading  on  this  is  to  cover  courtesy  of  employees,  prompt- 
ness and  efficiency  in  disposing  of  complaints,  success  in  sat- 
isfying complainants,  and  is  determined  by  judgment  of  the  in- 


spector. 

Note:  If  no  records  of  complaints  are  kept, 

give  not  more  than 90$ 

Meter  Testing 

a.  If  initial  tests  are  not  made,  deduct 10$ 

b.  If  installation  tests  are  overdue  (depend- 

ing on  per  cent  of  tests, and  length  of  time, 
overdue),  deduct  1 to  20$ 

c.  If  periodic  tests  are  overdue,  deduct  1 to 


4 per  cent  for  each  per  cent  of  meters  over- 
due in  accordance  with  the  following: 

If  1 to  6 months  overdue,  deduct  1$ 

" 7 to  12  **  " " 2$ 

” 13  to  18  " " " 3$ 

" 19  to  24  " " " 4$ 

d.  If  proper  testing  facilities  and  equipment 

are  not  provided  and  checked  (depending  on 
seriousness  of  violation)deduct  1 to  15$ 

e.  If  testing  is  not  done  in  accordance  with 
standard  practice,  or  where  proper  methods 

are  not  employed,  deduct  1 to  20$ 

f.  If  request  tests  are  not  willingly  and  pro- 
perly made,  deduct  10$ 


50 


Not©:  If  initial  tests  only  are  made,  allow  not 


more  than  10$ 

If  Installation  tests  only  are  made,  al- 
low not  more  than  20$ 

If  periodic  tests  only  are  made,  allow 

not  more  than 70$ 


Construction  and  Maintenance 

Grade  to  be  based  on  condition  of  plant  and  lines.  De- 
gree of  compliance  with  standard  construction  requirements, 
character  of  maintenance,  possible  hazard,  and  probability  of 
impaired  service  are  to  be  considered. 

For  each  per  cent  of  transformers  not  grounded 

as  required,  deduct  2$ 

Adequacy  of  Capacity 
Provisions  for  Emergency 

If  capacity  is  inadequate  (depending  on  like- 
lihood that  inadequacy  will  cause  interrup- 
tions), deduct  1 to  25$ 

If  provisions  for  emergency  have  not  been 

made  (depending  on  likelihood  that  lack  of 

such  provision  will  cause  interruptions), 

deduct  1 to  75$ 

Note:  When  a town  is  served  from  a trans- 

mission line,  consider  possible 
sources  of  supply.  Base  conclusions 
as  to  need  for  additional  provisions 
for  emergency  on  past  performance  as 
indicated  by  interruption  records. 

Adjustment  of  Bills 

Billing 

Extension  Policy 
Furnishing  New  Service 


If  refunds  on  over-registering  meters  are 

not  made,  deduct  1 to  15$ 

If  bills  are  not  sent,  or  if  improperly  or 
inaccurately  made  out,  if  unsuitable  form 
is  used,  or  billing  in  any  other  way  unsat- 
isfactory, deduct  1 to  15$ 

Depending  on  degree  of  compliance  with  rule 
covering  line  extensions,  and  on  promptness 
in  making  extensions,  deduct  .1  to  50$ 


51 


Depending  on  promptness  In  furnishing  new 
service  where  line  extensions  are  not  nec- 
essary, deduct  1 to  20$ 

Consumer's  Attitude 

Grading  to  "be  determined  by  judgment  of  inspector. 
Record  of  Interruptions 

Grading  to  be  determined  by  judgment  of  inspector. 


If  separate  record  is  not  kept,  deduct  20% 

If  duplicate  record  is  not  kept  in  local  of- 
fice, deduct  15% 

Voltage  Surveys  and  Records 


Grading  to  be  largely  determined  by  comprehensive- 


ness of  survey. 

For  failure  to  keep  records,  deduct  1 to  20% 

For  failure  to  provide  recording  voltmeter 

where  required,  deduct  1 to  15$ 

For  failure  to  keep  recording  voltmeter  in 

continuous  use,  deduct  1 to  15$ 

If  duplicate  records  are  not  kept  in  the  lo- 
cal office,  deduct  15$ 

Records  of  Meters  and  Tests 

If  meter  record  is  unsatisfactory  as  to  form 

or  completeness,  deduct  1 to  40$ 

If  meter  test  record  is  unsatisfactory  as  to 

form  or  completeness,  deduct  1 to  60$ 

If  duplicates  of  these  records  are  not  kept 

in  the  local  office,  deduct  10  to  20$ 

Record  of  Complaints 


Grade  to  be  determined  by  judgment  of  inspector,  con- 
sideration being  given  to  form  and  completeness  of  record. 

If  duplicate  records  are  not  kept  at  local 

office,  deduct  15$ 


- 


52 


The  following  instructions  are  for  use  in  grading  service 
of  gas  utilities. 

Pressure  (Including  Interruptions) 

For  each  per  cent  of  consumers  affected  by  unsat- 
isfactory pressure  (depending  upon  extent  to 
which  variation  exceeds  allowable  limits)  deduct  1 to  5$ 

Deduction  for  interruptions  to  be  determined  by 


judgment  of  inspector. 

For  failure  to  notify  Commission  of  long  inter- 
ruptions, deduct  15$ 

For  failure  to  notify  consumers  of  contemplated 
interruptions,  deduct  10$ 

Note:  If  no  records  of  interruptions  are  kept, 

give  not  more  than 90$ 

Heating  Value 


a.  If  the  average  of  the  inspector* s tests  shows  the  gas  to 
be  below  the  standard  of  565  but  above  530,  deduct  i per  cent 
for  each  B.t.u.  below  the  standard.  Deduct  3 per  cent  for  each 
B.t.u.  below  530. 

b.  If  the  utility* s tests  show  the  monthly  average  to  be  be- 
low the  standard  of  565,  deduct  2 per  cent  for  each  B.t.u.  below 
the  standard. 

Note:  If  no  records  of  results  of  the  utility *s 

tests  are  available,  give  not  more  than  . 90$ 

Handling  of  Complaints 

Grading  on  this  is  to  cover  courtesy  of  employes,  prompt- 
ness and  efficiency  in  disposing  of  complaints,  success  in  sat- 
isfying complainants  and  is  determined  by  judgment  of  the  in- 
spector. 

Note:  If  no  records  of  complaints  are  kept,  give 


not  more  than 


90$ 


55 


Purity 

For  each  per  cent  of  tests  showing  presence  of 
hydrogen  sulphide  (depending  on  amount  of  hy- 
drogen sulphide  present)  deduct  2 to  5$ 

Note:  If  no  records  of  hydrogen  sulphide  tests 

have  been  kept,  give  not  more  than  ....  90 $ 

Meter  Testing 

a.  If  initial  tests  are  not  made,  deduct  25$ 

b.  If  periodic  tests  are  overdue,  deduct  1 to  3 
per  cent  for  each  per  cent  of  meters  overdue 
in  accordance  with  the  following: 

If  less  than  12  months  overdue,  deduct 1$ 

If  13  to  24  months  overdue,  deduct • • 2$ 

If  25  to  36  months  overdue,  deduct  3$ 

c.  If  proper  testing  facilities  and  equipment  are 

not  provided, (depending  on  seriousness  of  vio- 
lation), deduct  1 to  15$ 

d.  If  testing  is  not  done  in  accordance  with 

standard  practice,  deduct  1 to  20$ 

e.  If  request  tests  are  not  willingly  and  proper- 
ly made,  deduct  . 15$ 

Note:  If  initial  tests  only  are  made,  give 

not  more  than 25$ 

If  periodic  tests  only  are  made,  give 

not  more  than  ...»  75$ 

Construction  and  Maintenance 

Grading  to  be  based  on  condition  of  plant  and  distribu- 
tion system.  Character  of  maintenance,  possible  hazard  and 
probability  of  impaired  service  are  to  be  considered. 

Adequacy  of  Capacity 
Proivlsfons  for  Emergency 

If  capacity  is  inadequate  (depending  on  like- 
lihood that  inadequacy  will  cause  interrup- 
tions) , deduct  1 to  50$ 

If  provisions  for  emergencies  have  not  been 
made ,( depending . on  likelihood  that  lack  of 
* such  provision  will  cause  interruptions),  de- 
duct   1 to  50$ 


54. 


Adjustment  of  Bills 

%mTng 

Extension  Policy 
FurnishYng  Newsservice 


If  refunds  on  over-registering  meters  are  not 

made,  deduct  1 to  15$ 

If  bills  are  not  sent,  if  improperly  or  inac- 
curately made  out,  if  unsuitable  form  Is  used 
or  billing  in  any  other  way  unsatisfactory, 
deduct  1 to  15$ 

Depending  on  degree  of  compliance  7dth  rule 
covering  main  extensions  and  on  promptness  in 
making  extensions,  deduct  1 to  50$ 

Depending  on  promptness  in  furnishing  new 

service  where  main  extensions  are  unnecessary, 

deduct  1 to  20$ 


Consumer's  Attitude 

Grading  to  be  determined  by  judgment  of  inspector. 

Record  of  Interruptions 
Pressure  Surveys  and  Records 

Grading  to  be  determined  by  judgment  of  inspector. 

Grading  on  pressure  surveys  to  be  largely  determined 

by  comprehensiveness  of  survey. 

For  failure  to  keep  recording  pressure  gauge  In 


continuous  use,  deduct  1 to  15$ 

For  failure  to  provide  recording  pressure 

gauge , deduct  15$ 

If  duplicate  records  are  not  kept  in  the  local 
office , deduct  1 to  25$ 


Records  of  Heating  Value 
RecorcHT  of  Purity 

If  records  of  heating  value  tests  are  not  pro- 
perly kept  or  are  unsatisfactory  as  to  form  or 


completeness,  deduct  1 to  50$ 

If  records  of  purity  tests  are  not  kept,  de- 
duct   1 to  50$ 


If  duplicates  of  these  records  are  not  kept  in 
local  office,  deduct  10  to  20$ 


55 


Records  of  Meters  and  Tests 

If  meter  record  is  unsatisfactory  as  to  form 
or  completeness,  deduct  1 to  40$ 

If  meter  test  record  is  unsatisfactory  as  to 

form  or  completeness,  deduct  1 to  60$ 

If  duplicates  of  these  records  are  not  kept  in 

the  local  office,  deduct  10  to  20$ 

Record  of  Complaints 

Grade  to  he  determined  by  judgment  of  inspector,  consider- 
ation being  given  to  form  and  completeness  of  record. 

If  duplicate  records  are  not  kept  in  the  local 
office,  deduct  15$ 

Merits  of  Grading  System 

One  of  the  important  advantages  of  this  development  is 
that  anyone  may  readily  determine  from  the  grading  report  the 
relative  condition  of  each  feature  of  the  service,  and  tell 
whether  it  is  good,  medium  or  poor,  A study  of  the  routine 
inspection  forms  for  gas  and  electric  service  (see  Plates  V. 
and  VI)  shows  that  the  engineer’s  report  indicates  the  rules 
violated  and  the  manner  in  which  they  are  violated.  The  grad- 
ing which  is  given  on  a form  stenciled  on  the  back  of  the 
routine  inspection  sheet  shows  at  a glance  the  degree  to  which 
compliance  has  been  effected,  A grade  of  90  or  95  will  indi- 
cate that  a rule  has  been  violated  but  only  slightly  so,  where- 
as a grade  of  30  would  indicate  a flagrant  violation. 

From  the  point  of  view  of  a large  public  utility  operat- 
ing in  several  towns  there  is  an  advantage  in  being  able  to 
show  the  average  grade  of  service  in  all  the  towns  on  the  sys- 
tem compared  with  towns  on  some  other  system,  and  the  relative 


56 


status  from  a service  viewpoint  of  the  different  towns  on  the  same 
system.  Such  a method  of  grading  continued  over  a period  of  years 
would  give  the  regulatory  body  a means  of  comparing  the  general 
condition  of  service  between  periods.  For  instance,  the  average 
grade  by  months  might  be  plotted  over  a period  of  years,  and  thus 
indicate  the  gradual  decline  or  improvement  in  the  service  from 
one  period  to  another.  Were  such  data  available  for  several  years 
past  one  might  expect  a curve  plotted  from  it  to  rise  from  January 
1,  1914  until  probably  1917,  when  it  would  show  a decline  until 
the  latter  part  of  1920,  when  it  would  again  begin  to  rise.  Such 
information  would  have  an  important  statistical  value. 

It  is  believed  further,  and  this  has  been  demonstrated  by 
the  use  already  made  of  the  grading,  that  a rating  of  the  differ- 
ent towns  in  the  matter  of  service  tends  to  create  a rivalry 
among  local  managers  of  the  same  utility  and  between  different 
utilities,  each  striving  to  maintain  an  average  above  that  of  the 
other.  Excellent  opportunity  is  presented  for  impressing  local 
managers  with  the  importance  of  attention  to  the  various  details 
that  enter  into  the  furnishing  of  service,  and  this  is  especially 
true  where  the  facilities  and  conditions  under  which  the  work 
has  to  be  done  are  about  the  same.  We  find  that  as  utilities 
become  acquainted  with  the  system  they  have  a much  better  con- 
ception of  the  value  of  the  various  factors  entering  into  service 
and  are  impressed  with  the  importance  of  giving  them  attention. 
They  have  also  a better  understanding  of  the  Commissions  work- 
ings and  become  more  familiar  with  the  Commission’s  requirements. 

It  is  expected  that  inspections  would  be  made  less  fre- 
quently in  towns  where  the  grade  shows  a satisfactory  service 


* * 

4 

• 

< 

* 

, 

■ 


-<  - 

* - 

- V. 

' ' ; 

‘ 

57 


while  the  interval  between  inspections  would  be  shortened  in  com- 
munities where  the  service  was  found  relatively  poor. 

Influence  of  Local  Management  on  Service 

Service  is  admittedly  dependent  upon  management,  the  de- 
gree of  influence  depending  upon  the  power  and  authority  resting 
in  the  manager* s hands.  Where  the  service  in  a community  is 
furnished  from  a transmission  line  of  a large  system  it  may  be 
argued  that  the  character  of  service  is  beyond  the  control  of 
the  local  manager.  The  table  given  below  furnishes  interesting 
figures,  representing  the  extent  to  which  the  grade  of  service 
may  be  influenced  by  the  local  management.  This  is,  of  course, 
only  approximate  and  is  based  upon  an  assumption  of  the  extent 
to  Which  the  local  man  has  authority  in  certain  service  matters. 
It  has  been  compiled  upon  the  assumption  that  meter  testing  and 
voltage  surveys  are  under  the  supervision  of  the  central  office, 
over  which  the  local  manager  has  very  little,  if  any,  control. 

It  is  also  based  upon  the  assumption  that  the  authentic  records 
of  interruptions  must  come  for  the  load  dispatcher  of  the  sys- 
tem, and  for  that  reason  a record  of  local  interruptions  only 
originates  with  the  local  manager.  The  compilation  shows  that 
even  under  these  conditions  the  local  manager  may  influence  the 
grade  received  for  electric  service  by  41.25  per  cent  when  the 
grading  is  done  on  the  basis  outlined  above. 


, 


3 


, 


. 


* ’ ' t 

~ 

. 

rr  • * 

* 


58 


Phase  of  Service 

Weight 

Contribution 

of 

Local  Manager 

Possible 
Influence  on 
Final  Grade 

Continuity  of  Service 

30 

25%  of 

Grade 

7.50 

Voltage  Regulation 

15 

75% 

u 

tt 

11.25 

Handling  of  Complaints 

10 

100% 

it 

it 

10.00 

Meter  Testing 

5 

10% 

it 

it 

.50 

Construction  and 
Maintenance 

5 

25% 

it 

it 

1.25 

Adequacy  of  Capacity 
Provisions  for  Emer- 
gency 

5 

0% 

If 

it 

.00 

Adjustment  of  Bills 
Information  on  Bills 
Extension  Policy 
Furnishing  New  Serv- 
ice 

5 

4:0% 

If 

it 

2.00 

Consumer's  Attitude 

5 

25% 

If 

it 

1.25 

Record  of  Interrup- 
tions 

5 

50% 

It 

it 

2.50 

Voltage  Surveys  and 
Records 

5 

0% 

If 

it 

.00 

Record  of  Meters  and 
Tests 

5 

0% 

It 

tt 

.00 

Record  of  Complaints 

5 

100% 

It 

it 

5.00 

< 

41.25 

-* 


. 


*• 

■ 

■ 


59 


APPENDIX 

PLATE 

I.  Curves  showing  characteristics  of  mazda  multiple 
lamps . 

II.  Curves  showing  characteristics  of  mazda  series  lamps. 

III.  Curve  showing  accuracy  of  watthour  meters  at  differ- 
ent voltages . 

IV.  Curves  showing  accuracy  of  watthour  meters  at  differ- 
ent voltages  and  loads. 

V.  Routine  gas  service  inspection  form. 

VI.  Routine  electric  service  inspection  form. 

VII.  Suggested  form  of  bill  for  small  electric  utilities. 

VIII.  Suggested  form  of  bill  for  large  electric  utilities. 

IX.  Suggested  form  for  acknowledgment  of  complaints. 

X.  Suggested  form  for  report  of  high  bill  complaints. 

(Two  sheets) 

XI.  Suggested  form  for  complaint  record. 

XII.  Suggested  form  for  electric  meter  test  card. 

XIII.  Suggested  form  for  summary  of  electric  meter  tests. 

XIV.  Suggested  form  for  electric  meter  history  card. 

XV.  Suggested  form  for  summary  of  gas  meter  tests. 

XVI.  Suggested  form  for  gas  meter  test  card. 

XVII.  Suggested  form  for  station  record. 

XVIII.  Suggested  form  for  voltage  survey  record. 

XIX.  Suggested  form  for  report  of  inspection  and  test  of 

gas  meter  prover. 


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laaaaaai 

laaaaaBi 


MM) 


PLATE  V. 

STATE  PUBLIC  UTILITIES  COMMISSION  OF  ILLINOIS 

ROUTINE  GAS  SERVICE  INSPECTION 


2 


y 

, Manager 
of  Service 
al  Sales 

ERAL:  consumers  as  of 

complaints  from  to 

ling  of  complaints 
•funds  made  for  fast  meters? 
rtant  changes  in  staff 

iriews 

ots:  Utility  records  Insp.  records 

'EM  : Local  works  or  pipe-line  supply? 

are  in  street  mains 

isions  and  alterations 

RATION:  Is  force  sufficient? 

oinmission’s  requirements? 


cu.  ft. 
191 


City 

Inspector 
Date  Inspection 
Last  Inspection 
Rules  Violated 

Date  Memo. 
Date  Reply 
Exemptions 


Pop. 

Dist. 


Attitude 

Forms  Clippings  Spec.  Rept. 

Is  capacity  adequate? 

Provision  for  emergencies 
Extension  policy 

Are  operators  technically  capable  of  understanding  and  carrying  out  the 


they  been  informed  of  these  requirements? 

npiions  from  to 

pours  duration  Max.  duration 

JlTENANCE:  Quality 

TNG  FACILITIES:  Quarters 

ttneter  Location 

sulphur  equipment 

t plant  Portable  gage 

JTY  OF  GAS: 


: Total  Partial 

Tests  and  inspections 
Prover 

H3S  apparatus 

Recording  pressure  gage  at  office 


SUMMARY  OF  TESTS  OF  QUALITY. 


Heat  Value 

Utility. 

Inspr. 

Purity  of  Gas 

Utility. 

Inspr. 

hs 

JStS 

• req.  aver. 

• req.  min. 
nly  a vg. 

;; 

— " ... 

No.  Total  S.  tests 

No.  outside  limit 

No.  H2S  tests 

No.  H2S  present 

ERS  AND  METER, TESTS:  No.  of  meters  in  service 

xls  of  testing  - Not  tested  within  five  years 


SUMMARY  OF  ROUTINE  AND  COMPLAINT  TESTS.  From  to 


% Accuracy 

D.R. 

Leak 

80  %- 

80-90 

90-95 

95-98 

9S-100 

100-102 

102-105 

105-110 

110+ 

le  tests 

• 

- 

laint  tests 

* 

SURE  CONDITIONS:  Quality  Pressure  surveys 

PRESSURE  RECORDS. 


Address 

_ 

Date  on 

Size  of  Main 

Size  of 
Service 

Distance  to 
Station 

No  Demand 
Pressure 

24  Hour 

% 

Variation 

Max. 

Min. 

■*-  • — 

1-  

• 

" 

**' 

•RDS  AND  FORMS:  Complaint  record  Pressure  records  ’ Meter  history  record 

al  test  record  . * Summary  of  meter  tests 

1 of  interruptions  Bill  form  Record  of  quality  tests 


IRKS: 


• • • v*  • 

: 9 

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: : : 9 ! 

jo  spjooejj; 
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soxA3ag  jo  suoppppuog: 

I5IHM) 


PLATE  VI. 

STATE  OF  ILLINOIS 


■•€6r#*  i 


PUBLIC  UTILITIES  COMMISSION 

ROUTINE  ELECTRIC  SERVICE  INSPECTION 

City 


Utility 

Official  Title 

Type  of  Service 
Hours  of  Operation 
NERAL:  consumers  of 

complaints  from 
Handling'  of  complaints 
Are  refunds  made  for  fast  meters 
Important  changes  in  staff 
Special  report 
interviews 
Attitude 


Inspector 
Date  Inspection 
Last  Inspection 
, 19  Rules  Violated" 
to 

Exemptions  Granted 
Billing 


Pop. 

District 


STEM:  Source  of  energy 

Is  capacity  adequate? 

Are  secondaries  grounded? 

Line  extension  policy 
ORATION:  Is  force  sufficient? 

the  commission's  requirements? 

Have  they  been  informed  of  these  requirements? 
interruptions  (make  general  statement.  Attach  detailed 


Character  of  construction 
Extensions  and  alterations 
Provisions  for  emergencies 
Are  operators  technically  capable  of 

record  of  interruptions) : From 


understanding 


to 


and  carrying  out 


INTENANCE:  Quality 


Inspections 


ITCHBOARD  INSTRUMENTS 
STING  FACILITIES:  Quarters 

Rotating-  stds.  Check  meter 

’ort.  rec.  vm. 

TERS  AND  METER  TESTS:  Meters,  A.  C. 

Pests  overdue  Installation 

Jethods  of  testing 

SUMMARY  OF  ROUTINE  METER  TESTS.’ 

% Accuracy 


Secondary  standards 
Ind.  wm. 

Cal.  cards 
D.  C. 

Routine 


Tort.  ind.  vm. 


Ownership 
Tests  by  Inspector 


From 


to 


Light  Load 
leavy  Load 
jTAGE  REGULATION:  Method 

Quality 

5QUENCY  REGULATION: 


D.  R. 

Creep 

-SO’ 

8.0  -90 

■ 90-96 

96-100 

•100-104 

Y04-110 

110-120 

120+ 

Voltage  Surveys 


Std.  Voltage 


VOLTAGE  CHARTS. 


Name 

Address 

Distance  from 

Size  Trans. 

; 

Date  on 

' 

Date  off 

.Hours  on 

Max. 

Min. 

Std. 

% 

Variatior 

•Trans. 

Sta. 

• 

, 

• ■ - 

- - 

■*« 

- 

10RDS  AND  FORMS.:  Complaint  record  Voltage  survey  records 

leter  history  record  Orig\  meter  test  record  Summ.  of  meter  tests 

station  record  Record’ of  interruptions  • ~ Bill  form 


‘Explain  nature  of  violations  on  back  of  this  sheet. 


i 


(OVER) 


apsjc  itciti 


: 9 

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,9 

spjioospr  pbe  e Saving  a&aVioA 

: g 

suoTpSnjjaial  ‘ jo"  pofobaH 

epjooaK 

• 

g 

apuat'4^.r  ibaeaciBUOQ 

aaiA-taS  iaaM  Satqstujn.i 

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Aoxjod  uoTsuaii-xa1 

* , 

sit  xq  tio  uo % % aaao  jrx I 

silTS  JO  jxxaott.snt’pv 

n 

AouoSvi&ujJi  joj  suotaiAOJj 

Apvo^cO  jo  Aoenbapy 

: 9 

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: 9 

L S G jj 

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v““oe““ 

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•aoxAjag  jo  suoxqxpuoQ 

( s>ijuui8j  Jdijjo  joj  put;  seinj  jo  suotpeiotA  jo  uoij'BU'R[dxa  joj  apis  sii{}  asfi) 


(aox) 


> •' 


PLATE  IX. 


'."TATE  PPBliiv  ? ^ILXTIEl  COtouSSI.,;:  OF 


Suggested  Form  for  Acknowledgment  of  Complaint. 


ACKliO WLE DGMEM!  OF  CGMPLAIOT 

C ozjaple  int  He  * Lat  © 


This  acknowledges  receipt  of  yours  of 
complain.  ; that  


This  matter  will  have  our  prompt  attention* 

You  will  favor  us  by  signing  our  workman^  re- 
cord when  the  matter  is  adjusted  to  your  satis- 
faction. 

Yours  very  trxuj 

Co. 


ky 


Explanation:-  The  above  form  is  intended  for  the  acknow- 
ledgment of  written  complaints.  h j^ri r.fced  .on  pcs/r^arU’ 

it  Will  facilitate  such  acknowledgment. 


REPORT  BY  UTILITY  OF  A HIGH  BILL 

COMPLAINT. 

Sheet 

Name 

Utility 

Kind 

Date 

Name 

Complainant 

Address 

Town 

METER  INFORMATION: 

Date  of  purchase  of  meter  above  location  and  at  present  in  use 
Date  set  Date  removed 


lumber  tests  (a)  date 
Meter  (b)  date 
inspected  to(d)  date 


.Accuracy 

n 


n 


Repairs 

It 

if 


Date  of  purchase  of  meter  formerly  in  use  by  complainant 

at  above  location  

)ate  set  Date  removed 


umber  tests  (a)  date  Accuracy  Repairs 

meter  sub-  (b)  date  " ft 

j acted  to  ~ 

( c ) dat  e " »* 


~ .--Transcript  of  complainant's  account  for  2 years  previous  to  date 

[ removal  of  meter  in  question  or  for  the  period  meter  has  been  in  service 
t above  location.  If  gas  has  been  measured  by  more  than  one  meter, during 
eriaa  that  this  account  extends  overstate  so  specifically. 

Gross  Year  Month  Day  Gross 

“Jan. 

Feb. 

March 
April 
June 
July 
August 
Sept. 

Oot. 

Nov. 

Dec. 

lioh  bill  or  bills  is  in  dispute 

is  complaint  been  made  to  utili.ty~relative  to  above  diiputed  hill  


ear  Month  Day 
“Jan. 

Feb. 

March 

April 

June 

July 

August. 

Sept. 

Oot. 

Nov. 

Dec. 


PLATE  X continued. 


REPORT  BY  UTILITY  OP  A HIGH  BILL  COMPLAIK T 


sheet  2. 


Was  it  investigated 


Disposition 


Any  previous  complaint  of  high  bills 


date 


Wa«  an  inspection  mads  of  installation  by  utility 

Date  . Results 


Has  complainant  deposit  with  utility 


Amount 


Complainant  ever  shut  off  for  deqlinquent  bills 

■Da^e  : • No. times 


Has  utility  ever  .furnished  service  to  complainant  at  other 
locations 


fa)  address_ 

fb)  " 


from 


to 


Remarks  should  include  information  that  will  describe 
the  credit  of  the  complainant,  promptness  inpayment  of  bills 
or  other  matter  of  importance  bearing  upon  the  cnmplaint. 


REMARKS: 


Prepared  bjr 

Approved  by 


Date 


i 


PLATE  XI. 


STATE  PUBLIC  UTILITIES  COM  SSI  ON  OF  ILLINOIS 
Suggested  Form  for  Complaint  Record 


Mr 


COMPLAINT  RECORD 

: (Letter 

: Complaint  No. (Person 

; ( Phone 

: Received  ,19  , by 


Adjusted  ,19 , by 


Complains  that 


Complaint  adjusted  by 


Time  required 
Material  used" 


Complaint  adjusted  to 
my  satisfaction 


The  above  form  is  intended  to  show:  the  name  and  ad- 
dress of  a complainant;  a number  given  the  complaint  for 
reference  purposes;  how  complaint  was  transmitted  to  com- 
pany; by  whom  it  was  received  and  when;  by  whom  it  was  ad- 
justed and  when;  the  nature  of  the  complaint;  how  it  was 
adjusted;  the  labor  and  material  required;  and  whether  the 
complaint  was  adjusted  to  the  satisfaction  of  the  complainant. 

This  form  can  be  made  up  into  pads.  Then  when  a com- 
plaint is  received,  a duplicate  record  can  be  made  by  use  of 
carbon  paper,  the  original  given  to  the  workman  instructed  to 
handle  the  complaint,  and  the  duplicate  pasted  in  a book. 

When  the  complaint  is  adjusted,,  this  fact  can  be  indicated  by 
pasting  the  original  in  over  the  duplicate  in  the  book. 


PLATE  XII 


PUBLIC  UTILT^ TS3  COMMISSION  QP  ILLINOIS 
Suggested  Po  i for  KleotrLc  Meter  Test  Card. 


Front 

of 

Card 


i 


Back 

of 

Card 


:Card 

: Bo. . 

(Name  ox'  Company) 
Meter  Test  Card 

Late 

19 T 

:Name 

Address 

: Location 

^Reason 

11 

: wake 

Type 

:Amp. 

Volts 

~VTtb 

JOIST'S  

rnioz — : 

~c^Trel!o7~ 

iManaara  usea  . — - 

utaving  01  Mia.  as 

: Con .Load 

used 

— 

found 

Sealing  left 

: Pound  Creeping? 

Wot.  Reg. 

Teat  as  Pound 

Bo ad  * Rev. 

3td.  * Rev.Serv. 

! Error  'Remarks 

• 

• 

« 

• _ 

• # 

• 

• 

« 

• 

• 

• 

: ; 

• ♦ 

• 

• 

• 

• 

• 

: ; 

• 

. • 

#► 

% 

• 

» 

♦ « 

♦ • 

• • 

Test  as  Left 

• 

• 

• 

• 

♦ 

♦ 

• • 

* • 

♦ % 

. • _ __  • 

• 

• 

• 

• 

• 

• 

« 

• • 

• • 

• • 

* 

• 

! • 

♦ 

• 

* 

: 

• e 

• 

• 

* 

• 

» • 

• » 

* « 

Tester 

PLATE  XIII 


STATE  PUBLIC  UTILITIES  C 
Suggested  Form  for  Summary 


OMMISBION  OF  ILLINOIS 
of  I lectric  Meter  Tests 


i i 


I I 


(Name  of  Company) 

Summary  of  Electric  Meter  Tests 


(Class 


For 


Month 
Year  - 


19 


♦ 

— 

Ave  re 

;e  di 

for 

i 

!Type 

i 

Reason 

for 

Test 

Not 

Reg. 

; li  e 3 S 

Creep- ;than 
ing  : 9Q/o 

W 

to 

96 

U6 

to 

1*0 

100"“ 

to 

104 

1U4 

GO 

110 

Over 
1 i 0/b 

Re mar ks 

Shop 


Installation 

Periodic 

Complaint 

Of fi c e 

Shop 

Installation 

Periodic 

Complaint 

Office 

Hhop 

Installation 

Periodic 

Complaint 

Office  _ ' 

SiTop  ' 

Installation 

Periodic 

Complaint 

Office 


Totals 


Explanation: 

One  sheet  should  he  used  for  each  class  (as  specified  in  Ser- 
vice Rule  No.  24)  of  meter  in  use. 

Under  "Type"  the  manufacturer’s  trade  designation  should  he 
given.  The  summary  sheet  should  have  sufficient  space  on  it  to 
take  care  of  the  greatest  number  of  different  types  represented 
in  any  one  of  the  periodic  testing  classes  prescribed  by  the  Ser- 
vice Rules. 

Shop  tests  are  those  made  in  the  laboratory  or  meter  shop  of 
the  utility  prior  to  installation. 

Installation  tests  are  those  required  to  be  made  on  consum- 
ers' premises  after  installation. 

Periodic  tests  are  those  made  on  consumers'  premises  at  regu- 
lar intervals,  as  prescribed  by  Service  Rules. 

Complaint  tests  are  those  made  on  complaint  by  a consumer. 

Office  tests  are  those  originating  with  the  utility  and  made 
_tr  a he  purpose  of  investigating  the  cause  of  apparently  incorrect 
registration  of  individual  meters. 


II IX  3TAJ<I 


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;• 


PLATE  XIV 


STATE  PUBLIC  UTILITI1*::.;  CO; pX^ION  OP  ILLINOIS 
Suggested  Form  for  Electric  Meter  History  Card 


— ‘ Feb.?_; . :I-.ay : June  : July ; Aug . :Sepl_.  :Oct . :ITov.  :I)ec 


Meter  Ho 
Class 


Make 

Amp/ 


Dial  k 


Date  : 

Set : Name 


( N am e of  Co mp any ) 

ELECTRIC  METER  RECORD 


Test  every 


months . 


"Volt  s' 


Type 


Wire 


Disc  K 


Maker's  No, 


Set 


Removed 


Addre  ss :Date  :Read  :Date  : Re  ad  ; Cause 


Record  of" Tests 


Test 

Card 

No. 


Reason : 
for  ; 
Test  ■ 


As  Round 


As  Left 


: Light  -Heavy : Light : Heavy ; 
Date  of:  load:  load:  load; load  ; 


Test 


fo 


% 


1o 


:Error  ; Error  '.Error  :Error 


Repairs 

and 

Remarks 


Date  Purchased 


Date  Condemned 
Reason 


-pl-^arEon; - By  use  of  colored  steel  flags  a different  mi 

, v^hich  can  be  clipped  over  the  top  edge 
maicate  when  periodic  tests  are  due  it  is 
che  cards  for  meters  to  be  tested  during 
v-  ueel  flags  can  be  obtained  from  the 


of  the  card  to 
easy  to  pick  out 
an^  given  month. 


Library  Bureau,  6 No,  Michigan 


Avenue 


Chicago . 


- 


. ! :• 


PLATE  XV 


(Form  for  Gas  Meter  Test  Summary*) 


; " " SiImmarY 

; (flame  of  Company)  Mo:/th  : : 

• Year  : 

:Cla?:  of: Years  in:  Percent  Accuracy  : 

: Two  : tervice:  9U- 

90-95 

9t>-9«:ya-iuu 

100-102 

105s-10b : lUb-Tlu 

1IC7T 

‘ »pAfltr  '‘m  * 

* 

♦ 

• 

• 

: h«-pr.r^  : : 

p • 
• V 

: Trmt.fil.t  f-f-  : 

* “Int-jou  • , „ ■ — 

• 

• 

• 

: _ ?*TJ=T 

» 

• 

• « A 

» :Over  6 : 

• 

0 

• 

• ; *4-5  ; 

A 

♦ 

1 

: Period rcJbi  . 

♦ 

* • * S -**3  ° 

: fra  : 

: fb-T  : 

• 

• 

• • 

2 

♦ ♦ • 

: :Qver  5 

« 

A 

: : 4-5  : 

• 

• 

• 

• 

: * : : 

• 

• 

• • 
• 

: -Td : 

• • 

• • 

* V * 

• • 

• • 

• 

♦ 

Note;  The  nr  .her  of  meters  tested  each  month  or  each  year  and  found 
to  fall  ujider  tne  headings  noted  above  are  to  be  entered  on  the  test 
summary*  •‘■he  same  form  of  card  may  be  used  for  both  the  monthly  and  the 

ye&ily  summary* 


PLATE  XVI 


S 


, i 


. 

. - • -«»■*»  -v  - ► - — 


’ 


■ 


PLATE  XVII. 

. . :/-  : v 

footed  Form  for  Ltation  Record 


— 


— • — 


(Name  of  Company) 

STATION  . ilCORD 


Condorclal  ervico 


. l'tnt  started. 


i*  nt  fchut  down 
Ho  ure  n.n 

l oat  J 


— 


street  For  vice 
At  down 

Hours  run  

c-t  lamv~'j 

cn  m 


THe”’  Tu/1  nt  i r 


jccn'd  . T.V r»c < r 


Ik  :OQ 


li  anight  to  neon 

12:30 


luaeter  readings  • at  teeter  or  wattiiour  meter) 

Noon  to  ini^niKht 
12:00  12:50 


1:00 

1 :30 

2:^0 

2:00 

3:30 

*SC0  . 

[ • :C 

5;30 

1 ;00__ 

1:30 

3:00 

5:30 

6 ;00 
? lOQ 
■1:00 
9:00 
tO:CO 
:::0C 


6:30 

8:30 


10:i>C 


6:20 

i : 

1C:  SO 

"-topped;  clean}. ag  boilers;  Irs  or  troubles  dti  equipment; 

interruptions  In  ©tract  system  ^oiratercial  circuit  - either  total 
r in  oart,  time  off  »r  on,  • itl-  'j.soa  snd  remedies#  eriodic 
.nitmeter  readineu  might  also  be  taken  ?Jh  i ?b  woul  unbalance 

cl  (3.  au"3  iceep  th  t : slant  at  nti  >.  ?.bcut  ?•  r^#  Readings 

_ „ £ ^ uxU.ea<:  utility  : refer  a to  ac.  to?  _ 


PLATE  XVIII 


paste  l ?onr  for  Volt  • go  'vc  Record. 


( Name  of  Com?  .-nr) 

70-  - ‘ a.Vli  D^C0EL 


Ho 


«tv  • ■ 


“fx^iTfo  rme  r ’ • "T  VolTa^e . 
lo»  & Location  ;P1  •>  of  . tea  *?.' 


— — — 

- — : — 


if  a ale 

- — - - • • • - - - 

•'.Lgn  - o : u 


standard  * 


r3nrrJv~y. 


V-'  ’ •• 


Te;  ter 


5 net rw n-  * > it  & > . a s c 


Explanation:- 

T&i&  form  is  «^r  showing  the  results  of  a voli-ge 

■ jjve,v  •'  h.  - r?  r . in.‘t  vol  -19? h\"«  ; ■ r;  r- 3 

aeed  in  case  an  indicating  voltmeter  is  tise-d  fox  the 


survey* 


I . 


■ 


. 


PLATE  XIX 


STATE  PUBLIC  UTILITIES  CGI  II II  S3 1 ON  OF  ILLINOIS 


PROVER  INSPECTION  AND  TEST 


Place 


Date 


Company^ 
Pr over 


Capacity 


Date  Purchased 


Accuracy  Last  Ohecked_ 


Present  Condition_ 
By 


Standard  Used  For  Present  Test 
Accuracy  of  Standard  - Start 


Fini sh 


Pressure  As  Indicated  by  U-Gauge  on  Prcver 

Time  per  Rev.  of  Meter  Rate  per  Hour 


Readings  and  Results. 


Temp . 


Meter 


Pr over 
1 2 


Test  # 

Room 

Start 

Finish 

Meter 
Start 
Fini sh 

Prover 
Start 
Fini sh 


Should  Prover  Be  Accepted  as  Accurate 
Remarks : - 


Differ ence 
1 2. 


$ Error 
1 2 


Signed 


